ࡱ> ;=2345<[ bjbj h~ΐΐ;I / 9 EEE$iiiPMii43555555$8YE(((YEEn,,,(vEE3,(3,,&6?siG)Nd0Ι*ΙΙE\r!f,#% YYa,^((((Ι :  PUBLIC SUBMISSION TO WATER MARKET RULES ISSUES PAPER BY MACQUARIE RIVER FOOD & FIBRE ON 9 MAY 2008 TABLE OF CONTENTS  TOC \* MERGEFORMAT 1) INTRODUCTION  PAGEREF _Toc198093287 \h 5 2) THE MACQUARIE VALLEY OF NSW  PAGEREF _Toc198093288 \h 5 3) THE CHARACTERISTICS OF MACQUARIE OFF-RIVER SCHEMES  PAGEREF _Toc198093289 \h 6 4) TERMINATION FEES FOR THE MACQAURIE  PAGEREF _Toc198093290 \h 7 5) REVIEW OF DISCUSSION PAPER CONTENTS  PAGEREF _Toc198093291 \h 9 6) CONCLUSION  PAGEREF _Toc198093292 \h 17  EXECUTIVE SUMMARY ԭs Issues Paper appears to start from the premise that the sellers rights are foremost. It is also focused on addressing issues perhaps related to the Murray or southern valley scenarios and takes an extremely prescriptive and detailed approach to issues relating to water market rules. MRFF understands that water market rules will need to be consistent and detailed enough to protect the rights of individuals to trade. However it is crucial that the ԭ realizes that one size will not fit all with respect to Water Market Rules. This is due to the distinct physical, infrastructure scale and governance differences across the Basin. Therefore it will be important to be less prescriptive in ԭs final advice to the Australian Government, with the approach of setting broad guidelines spelling out specific principles or requirements as necessary and leaving detail to be developed by Schemes in order to suit their own members circumstances. In this submission, Macquarie River Food & Fibre (MRFF) aims to achieve 4 outcomes: To explain the characteristics of Off-river schemes in the Macquarie; Give the ԭ our most current thinking on the process underway for developing a Termination Fee template to consistently apply to transformation arrangements across the Macquarie Infrastructure Operators; Address the Water Market Rules Issues paper & Questions it raises in the context of the Macquarie; and Request a dialogue between MRFF and ԭ to seek ԭ feedback on point 2) above and enable further input by MRFF prior to the ԭs draft advice and consequent opportunity for public submissions especially given our lack of opportunity to comment on ԭs approach to termination fees in this submission, given their absence from ԭs Issues Paper. The Nature of the Macquaries Off-River Schemes MRFF notes that there are riparian irrigators, extractions for town water supply, stock and domestic use and industrial use in the Macquarie as well as off-river irrigation schemes. Macquarie River Irrigation Schemes (Infrastructure Operators) differ from the southern valleys, with respect to the internalisation of losses and the original intent and method of their establishment. MRFF understands that southern NSW valleys have a separate conveyance licence (which is not tradable), in addition to their WAL in order to account for delivery losses within the scheme, without cutting into the WAL. However in the Macquarie there is no additional losses licence, so losses throughout the scheme system are socialized across all members and deducted from the volume of the WAL delivered to the Scheme. The second key difference is the basis of establishment of the Macquarie Infrastructure Operators being private investor/ business based as opposed to the southern valleys, where Infrastructure Operators were Government funded. Therefore it is important that the Water Market Rules proposed by the ԭ do not erode the business case that drove the establishment of these schemes. All the Macquarie Infrastructure Operators are off-river, with initial investment and ongoing operations owned and funded by members (whose interest was based on adjacent land ownership). It is because of the Infrastructure Operators physical constraints to access to the broader market for trading in (limited buyers and delivery capacity) and the potential for externalities on remaining scheme members, from delivery losses and operating costs with the ultimate potential consequence of creating stranded assets from trading out, that means some fees need to be a component of water market rules for Infrastructure Operators. The Need for Termination Fees The following points specify the justification of a termination fee as part of the water market rules specifying conditions of permanent trade or transformation of licences away from an Infrastructure Operator. Externality Created by trading out: There are a finite number of members on each of the Macquarie Infrastructure Operators, derived from the number of landowners adjacent to the scheme. There will always be some water losses involved in water delivery via the schemes, despite ongoing investment in reducing losses by Infrastructure Operators (nb: Macquarie Infrastructure Operators average losses vary between 10 and 20%, with World Best Practice for Scheme Delivery Losses being 15%). There is also a system of socializing the losses incurred throughout the Macquarie Schemes equally across all members, as referred to above. Therefore it is obvious that with less water in the Scheme WAL there is less water being delivered and less members to share losses across, so remaining Scheme members will face higher maintenance fees and higher charges per Megalitre of water used for irrigation to cover the comparatively higher losses unless these impacts are mitigated through fees that are a condition of transforming and / or trading water out of the Scheme WAL. (Refer Table 1 on page 6 for an example of the impact discussed above). Efficiency of Water Delivery Implications of trading. With each megalitre of water traded out of a scheme, there is a decline in the efficiency of water remaining within the scheme. While there may be some demand from remaining scheme members to buy more water in to satisfy individuals water security objectives, in the Macquarie there will be a limit to water traded in, both due to the limited number of buyers and the physical delivery capacity limitations of each scheme. This has implications not only for the remaining scheme members in terms of higher delivery losses relative to water used, but is also contrary to the objectives of the Basin Water Market & Trading Objectives as set out in Schedule 3 to the Act, specifically related to a) to facilitate the operation of efficient water markets and e) to provide appropriate protection of third-party interests. Termination Fees as a Solution: The future sustainability of off-river schemes and the imperative by both Government and industry to avoid the stranded asset scenario has highlighted to the Macquarie Schemes, the need to develop a combined approach to a termination fee, suited to each particular schemes set of physical characteristics, and operating and maintenance cost structures. While exit fees are mentioned in ԭs glossary, MRFF is unclear on ԭs position on them. Termination fees do not appear to have been mentioned at all by ԭ, which is very concerning, given that MRFF believes they are a critical element of water market rules for off-river schemes. The principles underlying the termination fee concept are that fees required as part of transformation (where access fees are no longer being charged) and /or trading arrangements are fair and reflective of expenses associated with departing from the Scheme in order to absolve the entitlement holder from any future obligation to pay access fees. There would then be no grounds for delay or restriction of trade by Infrastructure operators as the remaining members & the viability of the Scheme are not impacted by the sale of water from the scheme. This means in essence that following a licence being transformed into an individually held access entitlement, the Infrastructure Operator must be able to continue to operate the irrigation scheme with no increased charges from transformation arrangements being passed on to remaining members even where only one member remains in the scheme. The Proposed approach is to have 3 components forming a Termination fee to be placed on entitlement transformed out of an Off-River Scheme into an individual access entitlement, where the licence holder is no longer using and being charged an access fee associated with his delivery rights. The termination fee would also be charged on the sale of water out of the scheme. The fee would comprise: A dollar value fee paid to the Infrastructure Operator to mitigate fixed cost expenses into the future, derived from relevant components of the annual access fee (to be invested so as to deliver an annual return adequate to cover the departing members portion of these costs) Forfeit to the Infrastructure Operator of a volume of the entitlement being sold out of the scheme, as a conveyance loss fee to be placed in a Losses Account and to cover the departing members previous share of delivery losses each year. An agreed Contribution to Capital Expenditure fee based on each Infrastructure Operators agreement with scheme members on capital expenditure, brought back to a Net Present Value amount. The rest of this submission provides more detail on the above points and then attempts to provide the Macquaries context in responding to ԭs submission points. However MRFF notes the hypothetical response it has made to many of the ԭs questions, given the lack of existence of the facility for members to trade water out of schemes in the Macquarie at present. As discussed again throughout this submission, it is critical that ԭ works with MRFF to clarify and confirm its position on termination fees, so that there is no further delay in the establishment of water market rules specific to Macquarie Infrastructure Operators. INTRODUCTION Macquarie River Food & Fibre (MRFF) is an organization representing the interests of 600 irrigators in the Macquarie Valley, including the interests of riparian irrigators and the individual members of the valleys 7 irrigation schemes. MRFF promotes triple bottom line sustainability in water use and water policy and advocates a free and open water trading market, apart from where physical or environmental constraints exist or where there is an externality or third party impact. In the case of externalities it is MRFFs policy position that any impact would need to be addressed as part of the conditions of the trade on the seller, to ensure no other water users are worse-off as a result of water trading. MRFF thanks the ԭ for the opportunity to comment on the Water Market Rules Issues paper, but reiterates the concerns raised in the Executive Summary regarding the absence of reference to termination fees by the ԭ and the consequent need for some dialogue between ԭ & MRFF prior to the ԭs draft advice being released for public submissions. MRFF must state that it is dissatisfied with the extremely short timeframe for consultation, especially given the critical impacts that new water market rules will have on Macquarie Infrastructure Operators. Given the little time available, some of our responses refer to the need for further clarification pending professional advice from solicitors and accountants. The other major concern MRFF reiterates is the extremely prescriptive, micro-management approach ԭ has taken to the many administrative and operational issues related to water market rules in its issues paper. Infrastructure Operators in the Macquarie hope that ԭ leaves discretion to each scheme to develop its own approach to addressing many of the more administrative issues raised in this submission. THE MACQUARIE VALLEY OF NSW The Macquarie-Cudgegong catchment is located in the Central West of NSW with an area of approximately 73,700 square km. While the Macquarie is a regulated system, there is a large proportion of water allocated to environmental flows. The total average annual flow of the Macquarie is 1,448,000ML, with 73% allocated to the environment, 2% to industry and other uses and 25% to irrigation, representing the lowest consumptive use of the Western flowing regulated rivers of NSW. Below is a schematic map of the valley.  THE CHARACTERISTICS OF MACQUARIE OFF-RIVER SCHEMES As discussed in the Executive Summary, the Macquarie Infrastructure Operators are off river schemes and the members of these schemes are also the owner operators, who act in a voluntary capacity on a Scheme board to benefit each member of the scheme. Schemes were built and developed by the owners of the land. Water at this time was legally attached to land and this was one of the main reasons that this investment took place. It is noted that the ԭ continually refers to the Infrastructure Operator with the inference that the Operator potentially holds restrictive powers over individuals wanting to trade water out of Schemes. However MRFF makes the point throughout this submission, that in the Macquarie, the Infrastructure Operator effectively refers to the remaining scheme members, who are also individuals who need their water rights and conditions protected. There are seven schemes in the Macquarie: Trangie Nevertire Scheme Nevertire Scheme Narromine Irrigation Board of Management Tenandra Scheme Buddah Lake Scheme Greenhide Scheme Marthaguy Scheme These schemes have a combined entitlement of approximately 275,000 ML (at 100% allocation). These entitlements are gross entitlements and any losses within these schemes are losses to the scheme from the pumping head works, as noted in the Executive Summary and as distinct from the conveyance licence approach to losses by southern NSW valley Infrastructure Operators. Losses within these schemes are socialized and divided between members. This is an essential difference between Macquarie Infrastructure Operators and many of the southern Operators therefore it is important that ԭ understands that for a member to terminate with his entire share entitlement from the scheme would have impact on the losses to each remaining member. The proposed rules for termination in the Macquarie Valley would allow for the retention by the individual Infrastructure Operator of a proportion of the termination members entitlement to account for losses which are inherent in the scheme operation. The Macquarie Infrastructure Operators are unincorporated associations, except Narromine which is a Statutory Corporation representing an irrigation area set up as an individual entity. These schemes are legally bound by a deed of constitution and as such are required to abide by the governance already in place on their schemes, which have been operating effectively for many years. As each member is treated fairly in line with this level of governance, there has been a good working relationship and understanding by all parties. As discussed in the Executive Summary, the Macquarie Scheme Infrastructure Operators, (through MRFF) are developing guidelines for termination fees, with the aim of enabling trade or transformation of shares of the Scheme WAL into individual WALs. The need to develop termination fees is based on the principles of: ensuring no externality or third party impacts from the transformation or trade on remaining scheme members; and ultimately to ensure the Macquarie Infrastructure Operators are not faced with stranded assets at some point in the future. MRFF notes its disappointment that ԭ and other Government agencies have not invested effort into working with irrigation groups such as ours on developing termination fee concepts to ensure efficient and appropriate arrangements to avoid stranded assets. We hope ԭ can address this gap in its Issues Paper through consultation with MRFF and others prior to its Draft Advice. TERMINATION FEES FOR THE MACQAURIE In the knowledge that there are Scheme members who are interested in transforming their entitlement into an independently held water access entitlement, with a view to sale on the open market, the Macquarie Off-River Schemes, (through MRFF) are progressing towards finalizing a template/formula that could be applied consistently by licence holders in the Macquarie when trading water out of an Off-River Scheme. A consistent formula that is suited to the Macquarie Schemes will ensure equity and transparency of water market rules in the Macquarie for entitlement holders and will ensure the ongoing sustainability of the Schemes. The termination fee formula is being developed within the guidelines set out in the MDBCs Schedule E Protocol for Access, Exit & Termination fees (29 May 2007). Impacts of Trade on Remaining Scheme Members if no Termination Fee Exists: Table 1, below outlines the scenario raised in the Executive Summary, related to impacts on scheme members where no termination fee process is available to Infrastructure Operators. Table 1: Scenario of Trading out of Off River Schemes with no Fees/Conditions Scheme A with 10 membersScheme A with 7 members remaining after 3 trade outCost Impact of Trade out of 3 membersTotal Scheme Entitlement10,000 ML7,000 MLEntitlement per member1000 ML1000 MLDelivery Losses channel seepage & evaporation (20% of Scheme WAL)2000 ML2000 MLTotal delivery losses remain the sameWater available for use per member800 ML ie a 20% loss714 ML ie: 28% lossWater available per member decreases by 8% or 86 ML Total Operation & Maintenance Fee ($5.60/ML across total Scheme WAL)$56000$56000Total O&M remains the sameOperation & Maintenance Fee per member $5600$8000Increase in O&M per member of $3,000 or 42%Capital Expenditure Fee per member ($10/ML across total Scheme WAL)$10,000$14,286Increase in Capital expenditure fee per member of $4,286 or 42% Please note that the numbers in Table 1 are indicative for a relatively small scheme with 10 members, but not actual costs and have been used to demonstrate the impacts of the Schemes WAL being reduced without appropriate fees being charged as part of transformation and/or trade arrangements. From Table 1 the externality on remaining members of Schemes is clear with nearly 8% less water available for use and 42% higher O&M and capital expenditure fees for remaining members. Method for Calculating the Termination Fee The following table provides an example of MRFFs Termination Fee concept associated with transforming or trading entitlement away from and Infrastructure Operator. Please note again that the numbers used are indicative but not meant to be final or applicable to each of the Macquarie Infrastructure Operators. Table 2: Scenario of Applying Fees to Water Transformed from Off-river Scheme into Individual Entitlement Scheme operating at full Capacity of Entitlement 10 members and 1,000 MLFee for 1000 ML licenceOperation & Maintenance$10 / ML $10/ML x 1000 ML x 15 years = $150,000Conveyance Loss in ML20% 20% of 1000ML = 200 MLCapital Expenditure costs based on some accredited calculation such as MEERA as per agreement with each Infrastructure Operator $5 / ML x 15 years to reflect the life of assetsNPV( $5 / ML x 15 years) So from Table 2, if the owner of 1000 ML wants to sell entitlement out of the scheme, he will be charged a $150,000 Operation & Maintenance Fee and working on a 20% loss factor will forfeit 200 ML and so receive an individual tradable WAL of 800 ML. He will also be charged a capital expenditure contribution, based on the formula in Table 2 above. MRFF proposes that once the formulas are agreed for the above 3 charges, each Infrastructure Operator would apply a consistent approach by using agreed definitions for the above 3 charges. So for the Operating & Maintenance component of the fee, the Infrastructure Operator would use its own actual audited O&M fees over last 10 yrs plus cpi to apply to the fixed cost formula; likewise for the Termination Fee formula for calculating the amount of entitlement to be forfeited. Capital Expenditure Contribution would also need to be based a standard, accredited method of calculating a net present value for each Schemes future capital expenditure. Termination Fees and ԭ Concerns Regarding Restrictions to Trade The proposed termination fee structure will ensure the achievement of water market and trading objectives and principles, by ensuring that trade out of schemes is beneficial ie: does not cause third party or externality impacts. The fee is intended to be transparent and reflective of actual costs needing to be recovered by the Infrastructure Operator, so must not be construed as a restriction or barrier to trade. It will be market prices and the individual sellers own preferences (as is the case in any free and open market) that ultimately dictate whether individuals choose to trade water out of schemes. MRFF does not believe Infrastructure Operators in the Macquarie should have any powers to restrict trade. However MRFF takes exception to the position by ԭ that exit fees are classified as a type restriction to trade, negating their legitimacy. To deny that some form of exit or termination fee is legitimate is to deny that exit or termination fees are a necessary type of transaction cost, being a justifiable security requirement of Infrastructure Operators in enabling transformation arrangements or trade to take place. If ԭ is seeking suggestions on other ways of managing the role that exit or termination fees will play in the Macquarie, another option is for the Australian Government to pay the exit or termination fee to schemes as a means of subsidizing the seller by lowering his transaction costs. MRFF accepts that termination fees will be significant, in enabling Operators to recover costs. Therefore if ԭ and the Australian Government are prioritizing free trade of water as an imperative for the wider benefit of the community, then perhaps termination fees should be classified as community service obligations and become a Government responsibility, rather than the individual irrigators. REVIEW OF DISCUSSION PAPER CONTENTS Comments on Chapter 2 - Water Market Rules As has been highlighted by the ԭ in this Chapter, (Issues Paper p7) The Act also identifies that the water market rules may permit an operator to require security before allowing: a person who holds an irrigation right against an operator to obtain a water access entitlement through transformation arrangements; or a person who has obtained a water access entitlement as a result of a transformation arrangement to trade or transfer that entitlement. The critical water market rule under consideration for the Macquarie Scheme Infrastructure Operators is MRFFs proposed termination fee, with several components being charged as a condition of enabling either transformation or trading arrangements to occur. MRFF does not think it is appropriate to enable transformation or trade of an individuals share of the Scheme WAL without the payment of a termination fee. This is because it is each members share of the WAL that is the basis of the Infrastructure Operators business and security. As has been stated earlier in this submission, progressive departures from the scheme without an adequate termination fee will jeopardize the future of Macquarie schemes, as each departure will be increasingly detrimental both in terms of water efficiency and financial impost on remaining members. (Note: there may be exceptions in limited cases where significant inefficiencies are incurred by the Scheme as a whole, from delivering water to a specific member. Therefore in these cases it is in the Infrastructure Operator and remaining scheme members interest, that the specific member transfers their water out of the scheme) A separate but relevant issue related to undesirable restrictions on trade currently occurring in the Macquarie is the slow process by NSW Government in both processing trade applications and implementing the new Water Access Licenses. This has created a major barrier to trade for some license holders in this valley. The processing of a transfer of water by Government departments should be as quick to occur as with share market or real-estate transactions and instead it is taking years in some cases. Comments on Chapter 3 - Water market and trading objectives With respect to water market and trading objectives, MRFF makes the following points: Re market & trading objectives - As noted in the Executive Summary, MRFF believes that in order to comply with the Basin water market & trading objectives and principles, as set out in Schedule 3 of the Act, ԭ will need to incorporate a termination fee approach that addresses the impacts and concepts raised in this submission. Otherwise there will be inefficiencies created within the Infrastructure Operators business and there will be increasing impacts on third parties as more trade occurs over time. Please refer to the Executive Summary and Section 4 for further detail on the grounds for and approach to termination fees as proposed by MRFF. Re barriers to trade - ԭ notes (Issues Paper p9) Many restrictions imposed by operators could constitute trade barriers. It is important that MRFF reiterates earlier statements that the Termination fees it is proposing are designed to facilitate the opportunity for trade out of schemes rather than act as a barrier. MRFF believes that without termination fees, it will not be possible to enable transformation arrangements and trade out of schemes. Re transaction costs ԭ makes the statements (Issues Paper p10) High transaction costs can act as an impediment to a well functioning water market by discouraging otherwise beneficial trades from occurring. and that mechanisms related to trade should be designed with regard to minimizing the costs of implementation, to minimize any associated transaction costs. MRFF accepts these statements, but they cannot be made in isolation from the context of the market and are only representing the sellers interests. ԭs statements omit the need to define and ensure beneficial trade MRFF argues that a trade would not be deemed as beneficial if it created externalities on other entitlement holders and caused a decline in efficiency of water use - as would be the case for the Macquaries Off-River Schemes, without adequate transaction costs or termination fees as part of transformation arrangements. Therefore the principle behind what is an appropriate transaction cost for Infrastructure Operators to charge should be on ensuring beneficial trade ie: transaction costs being the minimum costs necessary to enable Infrastructure Operators to mitigate against any externalities and third party impacts related to the trade. Re protecting the environment MRFF is supportive of the need to avoid environmental externalities as a consequence of water trading. We would advocate the need for more collaborative work between ԭ and the irrigation community on this issue to pursue the possible solutions identified by ԭ, of restricting trade or more precisely specifying property right regimes in instances where a trade may result in negative environmental outcomes. However MRFF is concerned that ԭ is confusing two separate issues in its comments on protecting the needs of the environment. Environmental externalities is a completely separate issue to that of environmental water being a public good, despite there perhaps being public good issues to consider in how environmental externalities from trade are avoided. Public benefit theory indicates that Government or the broader community needs to pay all costs associated with delivering a public good, in this case, environmental water, so as to avoid externalities on private individuals (irrigators in the case of the water market). MRFF is very concerned, given the Australian Governments imperative to purchase substantial amounts of water for the environment that simply entering the water market to purchase water for the environment will lead to potentially devastating externalities within irrigation communities. The water market cannot adequately capture and address the full socio-economic costs to local communities, once a threshold point is exceeded in terms of water leaving productive use. (ԭ should refer to the work being undertaken by Murrumbidgee Irrigation and Murrumbidgee Catchment Management Authority on researching opportunities for temporary trade of water to the environment as a means of avoiding all the externalities associated with permanent trade). A further concern MRFF has regarding water being purchased for the environment is that the water purchased is usually General Security irrigation water, with associated fixed and variable charges. MRFF stresses to ԭ that these charges must remain tied to the entitlement, ie, become the responsibility of the purchaser. Otherwise, as significant volumes of water are purchased for the environment, irrigators usage and fixed charges will skyrocket, to cover the costs of subsidizing fixed and usage costs of the environmental water. Re Protection of third parties The points ԭ raises in relation to irrigation networks and their relatively fixed costs (Issues paper p11) are exactly the issues MRFF is seeking to address through the development of an appropriate Termination fee, to remove the potential for third party and externality impacts on remaining scheme members. ԭ does not articulate in its Issues Paper, that Water Market rules need to protect remaining scheme members and it does not specify its views on how remaining scheme members could be protected. ԭ has also omitted any detail on what it is referring to with respect to the range of tools and policies (that) can be used to provide appropriate protection of third party interests. These tools need to be targeted at both directly impacted remaining scheme members but also at the wider, flow-on socioeconomic impacts ԭ alludes to. Many irrigation communities are already close to or beyond threshold points necessary to maintain agriculture related services and suppliers. This means further flow-on impacts which cause population and general levels of economic activity plummet as the community is essentially dying. Therefore it is critical that ԭ gives adequate resources to researching, documenting and seeking community input on the development of the range of tools and policies it refers to, as part of its development of advice on Water Market Rules and other matters related to irrigation water policy. MRFF suggests that the time period over which significant volume of trades occur, as well as communities economic activity thresholds and opportunities to adjust are very important issues to consider as part of the discussion on appropriate tools and policies to protect third party interests. Re Q 3: Are there any other factors that the ԭ should consider when interpreting the water market and trading objectives? MRFF intends the above dot points to inform ԭ about other considerations in needs to make, when interpreting water market and trading objectives. Two important principles that MRFF suggests ԭ needs to establish with respect to water market rules for Infrastructure Operators are: the acknowledgement of equality rather than a hierarchy of rights across the water market with the requirement that no matter how much trade out of a scheme, termination fees associated with transformation arrangements will ensure that it is viable for Infrastructure Operator and the last remaining member to continue if they wish; and That the scenario of stranded irrigation scheme infrastructure assets and third party impacts on remaining scheme members are AVOIDED rather than compensated. Comments on Chapter 4 - Restrictions that should be permitted MRFFs comments on Chapter 4 are grouped under ԭs headings, rather than specifically responding to each of ԭs questions, based on the repetitive nature of the information. Re Constraints on the parties to whom water can be sold Apart from where there are physical or capacity based limitations or known environmental externalities, MRFF does not believe Infrastructure Operators have grounds for restricting trade. MRFFs proposal regarding the need for termination charges is not about restricting trade, but about ensuring that trade is beneficial, in that third party and externality impacts are mitigated. This is due to the physical characteristics of Off-River Schemes ie once water is transformed away from the Infrastructure Operator to an individual entitlement in the Macquarie, it would and should be treated the same as any other individual access entitlement in the regulated Macquarie-Cudgegong System, with the same trading, security and access conditions applying. Clause 30 of the NWI notes that regulatory approvals enabling water use at a particular site, for a particular purpose should be specified separately to the water access entitlement, consistent with the principles set out in Schedule D of the NWI. Any determinations in relation to Clause 30 of the NWI will need to be reviewed in detail to ensure there are no restrictions to trade due to further red tape requirements when trade is imminent. Re Constraints on water exports MRFF notes in terms of water export trade restrictions, that regulated water is not permitted to be exported to downstream river systems. Re - Other constraints on trade and transformation MRFF notes that comments with respect to trade in this submission relate to permanent trade. Temporary trading internally and out of schemes in the Macquarie has been occurring over many years. With respect to other constraints listed by ԭ (Issues Paper p16) as processes Operators may use to unreasonably delay transformation and/or trade do not apply in the Macquarie at present. However again MRFF takes exception to the classification of exchange or conversion rates as a type of constraint, as it is proposed to include a loss factor in the Macquarie Infrastructure Operators termination fees, in order waive the exiting members future contribution to the Schemes conveyance losses. Re Security for future payment of fees MRFF seeks clarification from ԭ regarding the definition of unbundling of water rights and how unbundling is relevant to Infrastructure Operators Question 4.4.1: To what extent do irrigators who elect to maintain their delivery entitlement following the sale of their water entitlement present a risk to the revenue security of an operator? MRFF is not proposing a system whereby irrigators have the option to waive their termination fee payment in preference for continuing to meet their annual access fee obligations, once they have transferred their share of the Scheme WAL into an individual WAL. Hence there would be no need for MRFF to consider building a security fee into transformation arrangements. Despite the Schedule E protocols position, the notion of an individual wishing to maintain their delivery right and obligations within the Scheme after transferring their water right out, has no logic that we can understand apart from acting as a form of assistance or subsidy to the seller by enabling him to defer and potentially avoid a transaction cost that is necessary in ensuring the trade is beneficial. The deferral option disadvantages the Infrastructure Operator and remaining scheme members, who then bear the ongoing risk of default increased administrative cost of recouping the annual fee. MRFF is not aware of any explicit public policy that states the rights the seller should be favoured over others in the market place. So in answering Q 4.4.1 and 4.4.2, MRFF disagrees with the notion that irrigators should be entitled to hold Infrastructure Operators liable for obligations to service their delivery entitlement following a trade and this is not only because there is then a risk that must be borne by the Infrastructure operator and remaining scheme members, but also because there is no logic to why this group of sellers should be different to any other, in being able to defer parts of the transaction cost associated with their trade. It is noted again that Infrastructure Operators in the Macquarie consist of voluntary boards, made up of licence holding members. The schemes do not have substantial administration arms, or capacity to take on the roles of holding, tracking or managing security over exiting members delivery rights, or the associated credit risk. An upfront, one-off termination fee payment as part of the transaction costs or transformation arrangements is a far more equitable way of avoiding the need for Infrastructure operators to need security over future payment of fees. Re Administrative fees and charges Macquarie Schemes administrative fees are minimal at present, as stated in the above responses. They are based and reflective of actual costs and MRFF believes water market rules should specify that these fees and charges be based on cost recovery. Re Cut-off dates and trading seasons Cut-off dates for trading seasons are generally not seen as applicable to permanent trades in the Macquarie Valley, regardless of whether Infrastructure Operator WALs or individual WALs are being traded. However some Infrastructure Operators may wish to have a cut-off date for permanent transfers within the water year. 30 June to 1 July. Temporary trades are subject to water availability. Re Interaction between operators and intermediaries MRFF states that Macquarie Infrastructure Operators would not recommend specific brokers or delay trades on the basis of which broker is being used. However with respect to the government agencies responsible for processing the transfer of water titles (DWE) in this case, there has been evidence that expeditious processing of transfers does takes place. For instance in recent history there has been an occasion where DECC sought to purchase water within days of the end of the financial year. However the transfer approval was through by 30th June, despite many other permanent trades remaining unprocessed, that had been lodged prior to DECCs trade. Comments on Chapter 5 - Actions that should be required As with our comments on Chapter 4, the following responses are sometimes under headings rather than directly relating to ԭs questions. Re Terms and conditions for transformation and/or trade Q 5.1.1: To what extent are operators terms and conditions for transformation and/or trade presently clearly specified, comprehensive and readily available? Customer and Operators are one of the same and every rule that Infrastructure Operators impose in the Macquarie is based on share of entitlement. Terms and conditions for trade out of schemes are currently under development through a consultative process amongst all the Schemes in the Macquarie and representation of all individual members by MRFF. MRFF looks forward to further clarification from ԭ on minimum actions required by Operators, so as to prevent any unreasonable delay to transformation and/or trade. Q 5.1.2: Should operators terms and conditions for transformation and/or trade be comprehensive and clearly specified as part of the supply agreement? The Macquarie Scheme Infrastructure Operators wish to include comprehensive and clearly specified operators terms and conditions for transformation and/or trade in supply agreements with members. However to date MRFF and the Schemes have not been clearly advised by ԭ of its position on our proposed termination rules thus hindering the development of clear guidelines for schemes in this valley and delaying the opportunity for any potential trades out of Macquarie Schemes pending ԭs clarification. Re - Enabling Transformation separate to trade: There has been no history of transformation or permanent trade out of Schemes in the Macquarie. Infrastructure Operators through MRFF are now keen to establish market rules including termination fees that will enable transformation and or trade of water out of Macquarie schemes. As part of these rules, it is MRFFs position that there should be no obligation on Infrastructure Operators (except by private negotiation) to service a past members delivery right if the member has transformed or traded their WAL. This based on the principle that the access entitlement is the necessary component of any Infrastructure Operators business and once this is traded or transformed, and a fee paid to the Operator, its obligations to the member should cease. With respect to Operators terms and conditions for specifying delivery responsibilities, MRFF believes that Infrastructure Operators existing systems of governance should continue, with discretion left to voting members through the existing processes regarding any changes. Re - Transformation and/or trade administrative process As has been raised earlier, there has been no transformation or permanent trade away from Infrastructure Operators in the Macquarie. The process of developing appropriate rules and termination fees has been hindered by lack of clarity of the processes required by Dept/ԭ as well as lack of funds available. It will be a costly exercise to update deeds of constitution in line with the changes to the water act and a series of low water years has left all Infrastructure Operators with very low funds. There is a process in place and a set form and set fee for riparian trades. MRFF suggests that Infrastructure Operator trades should be dealt by the individual Operator and that ԭ is introducing an overly cautious level of prescription into rules including any more than general guidelines regarding administration issues. Standardisation of forms is perhaps a good idea, provided the approach is in line with requirements of the Land Titles Office. With respect to Operators approvals processes, MRFF understands that the new processes for approval have been moved to Land Titles Office and will be similar to trading land, so once termination fees are established, trading should be much more efficient. However Infrastructure Operator boards of management would still need to operate their businesses effectively which indicates a need for board approval of any trades out. MRFF suggests that transformation and trading transactions should operate in time frames similar to a real estate transaction, with the time period for the process having commenced once formal application documents have been submitted to the Scheme and completed once the legal transfer documents are delivered to relevant parties and any transaction costs and termination fees paid. MRFF supports Infrastructure operators, as well as Government departments being required to meet prescribed limits in water market rules. Re - Operators water registers and accounts Operators registers and accounts is another area where ԭ seems to be overly prescriptive. These schemes are monitored at the river pump site, in line with any other riparian operation, carried out by State Water. The internal processes are most effectively self managed by Scheme Boards. Any external governance requirement for administration of water registers and accounts would only add costs. Frequency of updates to registers is determined by each schemes board of directors and it is usually monthly or more often as required by the members. There should be time limits in place for updating registers and accounts but these should be determined by each Infrastructure Operators members, based on their needs and preferences. In terms of information that should be publicly available, at present Infrastructure Operators in the Macquarie make usage figures available and will continue to do so. Re - Market Information Q 5.6 In relation to water market information (ie volumes and/or prices of irrigation rights and/or water access entitlements traded within, into and out of there area of operations): Is adequate market information currently available from operators? Market information is available on temporary trades at present and will be provided on permanent trades if and when they occur. b) What information do operators collect or could they collect? The operators only collect necessary information for reconciliation of scheme members water accounts. c) Should operators be required to provide market information and what should this include? This information can be received by State Water who could be paid to deliver a clear market perspective on price & quantity traded in the Macquarie. This could be given on a State Water Webpage for all irrigators to access and the responsibility of DWE. d) Is there any market information that operators should not be required to provide? Schemes should not be required to provide any information publicly. Market information is held with State Water Comments on Chapter 6 - Financial implications of water market rules Re - Mortgageability or irrigation rights Question 6.1.1 To what extent are irrigators that do not hold an individual water access entitlement disadvantaged in terms of access to finance, as a result of this arrangement? Macquarie Schemes individual members are not disadvantaged in terms of access to finance when compared to individual water access entitlement holders, as their share of the Schemes WAL is clearly specified and documented for use as security by mortgagees. Question 6.1.2 What processes are undertaken by operators to identify whether an irrigation right has an encumbrance? Have there been instances where this process has not been effective? MRFF believes that this question will need more clarification and legal advice once the new WAL regime is in place for Macquarie Infrastructure Operators. Re - Tax implications of transformation and trade Question 6.2: What are the possible tax implications in respect of transforming an irrigation right into a water access entitlement for a) operators and b) irrigators? MRFFs understanding is that the operators would have no tax implications as they are not for profit organizations and although they may accumulate funds over a period these are only for reserve purposes for time of need. With respect to irrigators, they should not be taxed on transforming a Water License into a Water Access License as this is a government process not a sale. Any tax liability would only occur at a trade and not transformation. Again this is a technical question that requires professional advice and more time to respond to. Comment on Chapter 7 - Application and implementation Re - Coverage of the water market rules Question 7.1.1 To what extent should the water market rules apply to all operators to the same degree? The scale of schemes and Infrastructure Operators differs vastly across NSW. MRFF believes it is important that some water market rules should apply across all Operators, in order ensure no one group of individual members are unfairly disadvantaged in terms of participating in the market. However there must be some distinctions made where there is likely to be a threshold point in terms of smaller schemes administrative capability, affordability and capacity to implement water market rules. a) Should any distinctions between classes of operators be based on the number of customers serviced, the volume of entitlements or another characteristic of the operator? Yes as number of customers and volume of entitlements directly dictate the size of the Operators business. There should be distinctions between classes of operators. The Macquarie Valley off river schemes are small in size, are owned and operator by a group of small users, and have relatively small volume entitlements. They are operated as unincorporated associations legal structures bound by a deed of constitution and operator and members are one and same. Question 7.1.2 Is there merit in a delayed application of the water market rules for specific classes of operators? If so, on what basis should operators be classified? The Schemes in the Macquarie, being small and not yet trading water, may need to delay application of the water market rules, pending the finalization of our proposed termination fee structure. We are awaiting clarification from ԭ regarding whether our proposed approach going to be supported, as valid and equitable to all parties. Re - Transitional Arrangements Q 7.2.1 Do contracts between an operator and its customers or members have a scheduled end date? If not, under what circumstances can existing terms and conditions be reviewed? There is no end date to contracts between scheme members and the scheme in the Macquarie. There is however provision for reviewing existing terms and condition via members voting rights at Extraordinary General Meetings or Annual General Meetings. Re - Monitoring and compliance with water market rules Q 7.3.1 To what extent is the conduct of operators (relevant to the matters the water market rules may relate to) currently monitored? Please provide details. The conduct of operators in the Macquarie is currently monitored by the Governance requirements based on the Water Sharing Plan of the valley. All other conduct of the operator is under its constitutional powers administered by its own members, underpinned by rules of corporate governance Question 7.3.2 Are there any other issues the ԭ should be aware of in developing and implementing monitoring arrangements? ԭ must be aware of NSW Government departments lack of ability to facilitate speedy water trade transactions between individual WALs to date. Therefore it is suggested that there needs to be monitoring and ability for enforcement of standards across government departments to ensure that the trading process is not hindered. CONCLUSION MRFF has invested considerable resources into compiling this submission within a very short time period. We hope ԭ is able to give genuine consideration to the issues we have raised and MRFF looks forward to some opportunity for further consultation and feedback from ԭ on our termination fees model. As stated earlier in the submission, MRFF believes ԭ needs to keep some principles in mind in drafting water market rules, and not just principles related to free trade, but also to the rights of those not directly engaging in trade. The seller should not be given priority in the hierarchy of rights across the market and it is concerning that ԭ seems to have taken this starting point based on Australian Government imperatives. Two important principles that MRFF has suggested through this submission that ԭ needs to establish are: the acknowledgement of the need for equality rather than a hierarchy of rights within the water market with the requirement that no matter how much trade out of a scheme, termination fees associated with transformation arrangements will ensure that it is viable for Infrastructure Operator and the last remaining member to continue if they wish; and That the scenario of stranded irrigation scheme infrastructure assets and third party impacts on remaining scheme members are AVOIDED rather than compensated.  Macquarie River irrigation schemes is the term used in the Macquarie valley to describe Infrastructure Operators. These schemes are owned and operated by members via voluntary boards of management. For consistency with ԭ terminology this submission uses the term Infrastructure Operators instead of irrigation schemes.     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