ࡱ> ac^_`%` vbjbjٕ .n &&&&&&&:"2"2"28Z22L:MtF3F3F3F3F3!4.O4c4 MMMMMMMhOhQM&>9!4!4>9>9&&33M<<<>9&3&3M<>9M<<[Jh&&sKF3:3 y "2;J{MM0MJR;R sKR&sKo4H5<6]7o4o4o4MM<Ro4o4o4M>9>9>9>9:::$^:::^:::&&&&&& PUBLIC SUBMISSION TO WATER MARKET RULES ISSUE PAPER by MURRUMBIDGEE IRIGATION 8 May 2008 INTRODUCTION Murrumbidgee Irrigation Ltd is an unlisted public company providing water supply, drainage and environmental services to approximately 3200 customer/shareholders in the MIA. The Company manages $500 million of infrastructure assets servicing over $2.5 billion in water entitlements. The Murrumbidgee Irrigation Area (MIA) is one of the most diverse and productive regions in Australia contributing over $5 billion annually to the national economy. The MIA was first established in 1912 following the commissioning of Burrinjuck Dam. Further expansion occurred in the 1970s with the completion of the Snowy Mountains Scheme and construction of Blowering Dam. The region has played a significant role in fostering cultural diversity with over 50 different nationalities now resident in the region. The region also played a significant role during and after WW1 and WW2 in terms of national security and repatriation. Some facts on MIA value adding Chicken meat - $300 million annually, 1.2million chickens / wk and 1500 jobs (4500 Aus) Feedlots - $450 million, 75,000 cattle (150,000 through abattoir) and 800 jobs. Wineries 13 wineries, 1500 jobs, 60 containers / day, $2.9billion annually. Citrus 130,000 tonnes 1500 jobs and $170M annually inc juicing and packing. Sunrice - $800million annually, 1800 jobs (1,100 Aus), Walnuts - $35m expanding to $400M in 10 years, Vegetables farm gate $40million annually. Livestock (non-feedlot) 650,000 hd Also cereal crops, pulses and oilseeds. Principles MI seeks the following principles to support the proposed water market rules: The rules should not drive outcomes in terms of the direction and volume of trade. In particular this requires: Universal application of the market rules to all operators and individual entitlement holders. Establishment of minimum standards with a capacity to review and lift standards in future, (rather than impose impossible targets for some operators or allow differential rules). Very good understanding of the different characteristics of potential market participants to adequately account for differences. One way that the ԭ can address this issue is to give all other operators the opportunity to comment on pleas for special treatment. The rules must take account of the need for operators to manage the changes that will inevitably follow the introduction of basin wide trade. The outflow of water will result in marked reduction of economic activity and wealth in irrigation dependent communities. But people cannot move as quickly as water. MI recognizes the long term benefits to the nation of allowing water to move in order to maximize profitability. However, such benefits will be mitigated and potentially compromised if short term costs to the losers (including the community) in this process are not recognized and managed effectively. The market rules should not work against previous agreements that have been reached between communities and Government such as the NWI. These have often involved costly negotiation between operators, regions and States. It would benefit all if the market rules were to build on these arrangements rather than ignore or discard them. Details Glossary The term irrigation right is confusing. It seems to be a direct customer contract that does not involve shares, delivery entitlement or water access entitlement. It may be helpful to avoid over-use of the term rights and introducing an additional right (beyond water access and delivery). A transformation is not a necessary condition to enable trade out of an operators area of operations. 2. Water market rules Page 6, paragraph 1.As noted above, a transformation is not always required to enable trade between an operators member entitlement and an external WAL. It is only required when the buyer wishes to retain water within the area of purchase. Trades can take place direct between the operators customer and the WAL of destination via the operators entitlement. Also, there is no evidence that an individual entitlement (WAL) has greater access to finance than an MI entitlement. 3. Water market and trading objectives Dot point 7, page 10. The establishment of well defined individual property rights should be the primary condition for efficient markets, and afforded the highest priority. Simple measures to capture the benefits of this low hanging fruit will yield much greater benefits at much lower cost than anything else. MI has already experienced environmental buyers that seek to acquire rights that are more secure or are otherwise better than the existing property rights (or right that is traded). This should not be allowed. The list of efficient market characteristics on page 10 should include competitive neutrality. This is important for rural water supply because of the mix of private and government organizations that are service providers. Question 3. The definition of third parties should be extended to include the wealth impacts on irrigation dependent communities. Such definition would better allow for ԭ to adequately address the need to manage adjustment costs for both individuals and communities. 4. Restrictions that should be permitted 4.1 Constraints on parties to whom water can be sold. MI is of the understanding that the licensing of use has been separated from water, and land and delivery rights must soon be separated from water by all operators. If that is not the case, there would seem to be significant differences in application of water reforms between operators. This should be addressed through direct measures. Further, MI would find it intolerable if these matters were permitted (in what must be special circumstances) to tilt market or trade rules in favor of those that already receive special treatment. Question 4.1. The only circumstance that MI recommends as a permissible constraint on a buyer are for those jurisdictions that seek to trade water in but do not permit water to be traded out or have barriers to trading out (in terms of Federal and State guidelines). This circumstance is not envisaged in this section of the ԭ issues paper. MI does not concur with any of the circumstances mentioned in the issues paper. Existing laws should be sufficient to address speculative or predatory behaviour in water markets. If not, then the market rules should provide for those same protections in relation to the water market. 4.2 Constraints on water exports. MI is very concerned that some operators would be continuing to impose exit fees. This should not be allowed to continue. Moreover, the practice of charging termination fees that are excessive in terms of a reasonable cost of delivery should also be reviewed, and phased out. MI has previously tabled options for developing a Termination Fee regime that encourages efficiency of service delivery. Question 4.2. The only circumstances that MI recommends as permissible constraints on water exports are: The 4% limit on annual trade out of entitlement from a single operator as agreed under the NWI. This is necessary to enable sound management of structural change and minimize associated costs on individuals and the community. The market rules should address those operators that have lower annual limits (in volume or percentage of entitlement). The use of an operators water savings to supplement additional water use in the area of operations (as opposed to trade out of the region). This has been represented in the issues paper as a loss of benefits associated with membership in the event of trade out. But there is no such loss of benefits because the operator should have a contractual obligation to meet the benefits of membership. Additional benefits such as the operators water savings should be able to be used in ways that are in the best interests of the operator and its stakeholders. MI is happy to consider ways to distribute its savings without reference to a customers trade status if that enables achievement of Company objectives without raising the sort of concern referred to in the issues paper. MI is happy to trade into other districts where reciprocal arrangements for trade are fair and reasonable in terms of current Federal and State guidelines. This is seen by MI as a last resort in terms of ensuring a level playing field for its stakeholders and to date has not been applied. MI would be prepared to consider alternative methods of achieving the above objectives that are cost effective and equitable. 4.3 Other constraints on trade and transformation. Question 4.3: The only circumstances that MI recommends as permissible constraints on trade and transformation are: Limits to trade of unmetered supplies. MI supports trade of these supplies in the event that the user is maintains access to water that has previously been traded (ie, effectively increase water access). We therefore allow trade out of unmetered supplies if they become metered or the supply/outlet is closed to the satisfaction of MI. Restrictions placed by the State on specific types of water rights. By law, we must support these arrangements most of which are there because there is no embargo on these types of licence. However, if they are under review, we recommend that ways to meet future increases in demand from these types of license without the need to increase the volume of licenses should be considered. For example, with an embargo in place, trade between town water may provide revenue for slower growing towns and water for development in towns that are growing more rapidly. There may be similar gains available in allowing trade in stock and domestic licenses (if it can be shown that the seller has surplus water). However, trade in groundwater, dam fill licences, and drainage water should be strictly limited by the hydrological and water supply conditions. For instance, drainage entitlement should only be tradable within the relevant drainage system and only where it is still deliverable to the buyer. The restriction of trade out of specific districts or defined zones when such trade cannot be accommodated because of special hydrological and water supply conditions. Examples include: drainage water that cannot physically be returned to the primary water source (as is the case with the Wah Wah irrigation area within MI). MI is very concerned about the use of exchange rates/conversions to the extent that they change the nature, or carry high risks of changing the nature, of the entitlement to the detriment of others (ie, privatize benefits and socialize costs). MI will continue to support tagging of entitlements for trade. The above limitations are all consistent with clause 4 section 3 (2) of the Water Act which states that Water access entitlements may be traded.., if water resources are physically shared or hydrological connections and water supply considerations would permit water trading. The constraint is that in the above cases the hydrological connections and/or water supply considerations do not permit effective trade in water beyond the limits suggested above. That said, even with these limitations the right to trade should be maximized through for example net balance arrangements (ie, giving people the opportunity to trade out if there has been a trade in). Such a net balance constraint is applied by the NSW Government to the Murrumbidgee Valley as a whole due to supply constraints (that is, water cannot be traded into the Murrumbidgee Valley unless there has been an equivalent volume traded out), and MI and other Murrumbidgee Valley stakeholders accept this position. 4.4 Security for future payment of fees. Question 4.4.1: A typical balance sheet for a watered property would see water entitlement ranging from about 80% to 95% of total assets, with a capitalized liability for delivery entitlement in MI of about 15% of water entitlement. The risk to the revenue of operators when land that is serviced by irrigation infrastructure does not have water access entitlement is captured by the worst case where the farm is rendered a dry area property. There is no particular reason to expect that the property would do any better than current dry area properties, and most evidence suggests it would do worse. This means that the farm would have significantly lower than average returns because of the additional annual costs of meeting fixed delivery access fees and reduced income. That presents special challenges for operation of such a farm. If it runs into financial difficulty the question becomes, what percentage of the liability to MI could be claimed from remaining net assets (after the water has gone)? In many cases the remaining net assets would not cover the capitalized liability of water delivery fees. Question 4.4.2: Operators are well placed to assess credit risks, and MI has accepted the current Schedule E Protocol in respect of seeking security over future payment of access fees. At the time we stated a preference for enabling security when the value of retained water falls below the value of the termination fee on delivery entitlements (rather than 50%). That preference remains but the risk differential, while imposing extra costs, is manageable. It would not be manageable in the absence of any security arrangements and this would undoubtedly increase costs for remaining producers which would in turn lead to more exits and a self reinforcing downward spiral. The security arrangements may lock up capital but are consistent with reasonable risk sharing between operators and individual members. If some members can shift all risks to the operator then it is likely that a large free-rider problem will emerge and make investment in water delivery services very difficult. Given that water delivery services provided by operators are a public good, that is likely to result in sub-optimal investment in irrigation services. There are alternatives such as bank guarantees, but these would tie up capital in the same way as using irrigation rights as security. The security should be consistent with the value of the remaining liability for delivery entitlement to the operator. If capping is necessary to achieve that then it should be considered. 4.5 Administrative fees and charges Question 4.5: MIs fees and charges for transformation and trade are very low. They are intended to reflect costs. Such fees and charges should be limited to a maximum that is equal to full cost recovery. 4.6 Cut-off dates and trading seasons Question 4.6: In the past MI has argued strongly for cut-off dates for trading with the objective of individualizing incentives for cap compliant water use. That objective has not been well received and has resulted in accusations that the cut-off dates were a barrier to trade. That is not the case. The only cut-off dates that are now applicable in MIs area of operations are reflected in the Murrumbidgee Water Sharing Plan. These are aimed at correcting potential for unfair trading due to different entitlement types and characteristics, especially the differing carry over provisions between valleys and States. To the extent that market rules address cut-off dates, MI recommends that cut-off dates for trade be limited to protecting the integrity of private water access property rights and the market. 4.7 Interaction between operators and intermediatories Question 4.7.1: MI does not currently operate an exchange or provide brokerage services. It does not recommend specific brokers or exchanges for trade, and there is no difference in MIs approval process due to the broker or exchange. These conditions would be maintained if MI were to take on brokerage or exchange services. 5. Actions that should be required 5.1 Terms and conditions for transformation and trade Question 5.1.1: MIs processes for trade are detailed in rules that are distributed to members and published on our website and in hard copy for other interested parties. The processes for transformation have evolved more recently and conditions and processes are made very clear to member applicants verbally along with public availability of all necessary forms. MI is currently preparing material for publication to explain conditions and processes to stakeholders. The Company MI has not received complaints about inadequacy or lack of information about its trade and/or transformation processes. Question 5.1.2: Formulation and publication of MIs rules for trade and transformation are supplementary to the member contract but the requirement to provide such information is set out in the member contract and/or constitution. It seems fundamental to an operators structure that it must inform members and others about policies and rules related to trade, transformation and other issues that have a bearing on the members rights and responsibilities. These rules must be able to be changed by the operator. However, the operator must be accountable to members for such changes, and the rules must be compliant with relevant Federal and State law, regulations, and rules. Presentational issues such as identification of the rules that are for compliance reasons should be optional. 5.2 Enabling transformation separate to trade. MI has satisfactory member and customer supply contracts that adequately define the rights and responsibilities of respective parties. In addition it is currently in the process of separating delivery entitlements from water access entitlements and making specific provisions in relation to these delivery entitlements. Question 5.2.1: A member can transform their water access right to a water access entitlement, but if they do that delivery is only possible through a separate customer supply contract. This was enabled through administrative changes over the last couple of years and constitutional changes in 2006. Question 5.2.2 It is difficult to see how operators could avoid specifying the terms and conditions on which they will provide delivery services to a customer holding transformed water entitlement. MI does so through customer supply contracts. The terms and conditions (minimum and other) should be negotiated between the operator and the customer. The operator should have the discretion to negotiate terms and conditions that are different to those of a member, for both broad customer types and individuals. Subsequent rights to variations by the operator - including circumstances that may trigger variation, review provisions, timing, and processes - should be dealt with in the contract. The contracts must be formally agreed and within the bounds of fairness under contract law. 5.3 Transformation and/or trade administrative process. MIs transformation and trade processes conform closely to those outlined on page 26 (although the final specification of delivery entitlement is still in progress). MI, along with most NSW operators, has regularly ranked very highly in terms of the speed of trade processes. (first in 04/05 and 06/07 NSE best practice award) The process of transformation being more recent has no comparative data available to our knowledge. Question 5.3.1: The current water balances at the time of trade needs to be confirmed and made available to the interested parties. Question 5.3.2: The individual needs to know the current status of the water entitlement that is to be transformed or sold (see page 26 plus water balance information), the rules of transformation (including potential options for delivery and/or delivery entitlement), the operators assessment of any breaches of those rules or outstanding issues related to the entitlement, and the processes and forms that must provided. Question 5.3.3: A complete description of what the applicant proposes (eg, some have sought to come up with structures to avoid meeting access or termination fees), the current status of the water entitlement, and application forms completed (application forms are on MIs website). Question 5.3.4: A base set of application details may be possible but there are likely to be variations that are needed from jurisdiction to jurisdiction. Question 5.3.5: Statistics are available on the speed of transformation and trade approval. The disparities suggest significant inefficiencies. Question 5.3.6: The MI Board has delegated approval for trade and transformation to the Chief Executive Officer. The Companys approval process would not seem to be slowing processing times given our relative performance in terms of processing speed (see 5.3 above). Question 5.3.7: The circumstances when identification of processes to comply with laws and regulations is helpful should be known to the operator but should be optional (see also 5.1.2 above). 5.4 Timeliness. Question 5.4.1: Not always, there are significant, unexplained, variations from operator to operator. Question 5.4.2: The main factor that should be considered is universal application. This may result in rather slow minimum standards but operators can and currently do significantly exceed such benchmarks. Also, the minimum standard could be hastened in subsequent reviews (say, annually). Question 5.4.3: Operators would monitor and be able to report such data. Most brokers also monitor timeliness and some publish results. 5.5 Operators water registers and accounts. These issues are being dealt with through the NWI project to improve compatibility of registration and accounting against water entitlements. Question 5.5.1: It would be surprising if the more fundamental need to service members and the Governing agencies did not result in high quality registration and water accounting services. MIs understanding is that the problem here lies more in incompatibility. Question 5.5.2: Interoperability and incompatibility could not account for the differences in processing times. If that is allowed as an explanation for slow approval processes we are likely to disappear up an IT black hole of our own making for a considerable time. The registration and accounting information in most cases could be accommodated in a very simple spreadsheet. Question 5.5.3: Not for transformation and/or trade. If updating registers and water accounts is not timely then the basin should expect far more costs in future than those we might expect from sub-optimal levels of water trade. Contemplating these issues under water market rules seems to be an attempt to use the tail to wag the dog. These issues should be treated very directly and rapidly through other means (eg, direct regulation with significant penalties for non-performance). Question 5.5.4: All individual registration and accounting information is strictly commercial in confidence. The only parties that can access this information are those involved in a water trade (see above) or other dealing with the individual concerned. In these cases, the individual requests that the information be provided to the third party. MI would not provide such information without the permission of the individual concerned, and public provision of such information or part of that information should not be allowed. 5.6 Market information. Question 5.6 MI does not currently provide brokerage and/or exchange services. The market information within the MI region of operations is therefore publicly available through water brokers and exchanges (for volumes and prices related to water trade) and MI (for rules, processes, registration and accounts data). MI has previously reported data on trade volumes within, and into and out of its area of operations but while the primary data exists the lack of demand has led to irregular formulation and provision of the reports. It is difficult to envisage further information that MI could provide to improve the efficiency of the markets, and commercial in confidence data relating to individuals should not be provided by operators. 6. Financial implications of water market rules 6.1 Mortgageability of irrigation rights Question 6.1.1: MI is not aware of any disadvantage for its members in terms of access to finance or the terms and conditions of finance. It has not received one complaint from a member to date. Question 6.2.1: MI does not register third party financial encumbrances at present. The Company is currently reviewing this position in light of current perceptions that there may be a problem such as is implied in the ԭ issues paper (despite not receiving any complaints from members). 6.2 Tax implications of transformation and trade Question 6.2: MI is not aware of any special tax implications that would require market rules to ensure efficiency or equity of the market place for water transformation and/or trade (for operators, members, or customers). That said, we strongly advise members and customers to obtain specialist tax advice from their own financial advisers before transforming or trading water access entitlement. 7. Applications and implementation 7.1 Coverage of the water market rules Question 7.1.1: The water market rules should apply to all operators. The ԭ should avoid rules that would result in excessive costs of compliance, even for smaller operators. If this is achieved, the costs should be readily recouped as part of the charges for processing water transformations and trade. If there are cases where compliance costs are large and unrecoverable, the Commonwealth should consider providing assistance to meet the costs rather than enable distortion of the playing field for transformation and trade. Alternatively, the market rules could initially be set at quite readily achievable standards and allow standards to improve over time rather than risk high costs and loss of confidence of operators by setting the bar too high at such an early stage in the evolution of the markets. Question 7.1.2: MI is unaware of the need to delay compliance with market rules for any class of operator, especially if it provides assistance to operators that are relatively less able to comply due to excessive costs and establishes reasonably achievable standards. However, if such circumstances exist, MI would support a transitional period being applied to all operators. 7.2 Transitional arrangements Question 7.2.1: MIs member contracts are currently under review to better define delivery entitlements, so review to ensure compliance is possible (but may take time). If the ԭs draft market rules result in problems in relation to current contractual arrangements for MI it will rapidly bring them to the attention of the ԭ. In this case, MI may seek a transitional period to enable conformity. However, in line with our above recommendations we believe that all other operators should be given the benefit of that transitional period (even those that may not be directly affected). Question 7.2.2: All irrigation rights within MI (and other NSW Irrigation Corporations) are contractual. If the water market rules are unable to account for those contracts (member or customer) then they are likely to cause widespread problems and this would suggest the need for review of the market rule rather than the multitude of member and customer contracts. Question 7.2.3: MI is not currently aware of other transitional issues, but if they exist MI would urge the ԭ to place high priority in ensuring that adequate transition is provided to enable compliance and to provide the best chance of successful implementation of transformation and trade for water users and related communities. 7.3 Monitoring compliance with the water market rules Question 7.3.1: The key to successful monitoring is that it be conducted by an independent monitor. MIs activities are very closely monitored by Governments, its members, and other stakeholders. There is likely to be no shortage of informants in the event that MI is alleged to be non-compliant with water market rules, or in the information available to test such allegations. Question 7.3.2: MI has no further issues at present in terms of monitoring arrangements.  Brett Tucker Managing Director Murrumbidgee Irrigation     6789PQ\]ik  ! 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