EDITORIAL (May 10 2009): The Asian Development Bank has signalled its readiness to extend a credit line of $500 million to $1 billion, sought by the Ministry of Water and Power to rid Pakistan Electric Power Company (Pepco) of the accumulated circular debt of around Rs 180 billion. The debt has badly affected the functioning of the entire power sector.
A news report quoting a Ministry of Water and Power source has said that Pakistan is seeking the ADB loan at LIBOR plus 150 to 200 basis points. If successful in obtaining the loan, the government will inject some of the capital to erase the entire power sector circular debt. The Ministry of Finance had opposed seeking the loan as it wished to generate the required capital by hedging the assets of the entities involved in the circular debt under the concept of REIT (Real Estate Investment Trust).
However, this would have taken at least one and a half to two years - a timeframe the government was not willing to allow, as it wanted the debt to be erased by June 30, 2009. When asked how the Pepco would repay the loan along with the mark-up, an official is reported to have said that the power tariff was being raised by around 4 percent, and the process of recoveries was also being expedited to improve financial health of the Discos.
A news report has meanwhile claimed that the monthly earning of Pepco stands at Rs 25 billion against an expenditure of around Rs 38 billion, representing a monthly deficit of Rs 13 billion. Controlling such a huge monthly deficit through pursuit of rigorous financial discipline and prudent practices can help Pepco to conserve financial resources.
A major cause of the accumulated circular debt was the steep increase in oil prices in 2008, to around $147 per barrel from around $50 per barrel. Although oil prices have since attained stability, the price surge has left behind the huge circular debt, which continues to destabilise the energy chain. The steep rise in oil prices and the subsequent negligence of the government to increase power tariff and POL prices had caused the Discos and OMCs to incur losses.
As one analyst has put it, this had generated a situation where receivables from the government to the OMCs came under control, but the losses sustained by power distributors rendered them incapable of paying their dues. As the dues of power distributors mounted, the receivables of IPPs too increased.
In order to ease pressure on themselves, the IPPs had to let their payables slide as well, which landed the OMC sector in grip of debt. The circular debt is thus a result of the "chain reaction." Unless power sector defaulters are made to pay the outstanding dues, Pepco cannot effectively run the power sector, as it has to purchase power from the IPPs, at rates that are believed to be exorbitant. The IPPs' threat last year to call the sovereign guarantee had forced Pepco and its allied companies to pay Rs 30 billion.
The IPPs generate power with sovereign guarantees given by the government regarding the purchase of power, and payment thereof by public sector companies, which purchase power from them for onward distribution to different types of consumers. Secondly, fuel companies have to supply fuel to the IPPs, but these have to be paid their dues on time to enable them to keep the fuel supply intact.
A major cause of the persisting energy crisis is that despite a huge surge in oil prices, the government remained reluctant to pass on the increase to the end consumers. This has resulted in the petroleum price differential between the government, the fuel supply companies and the IPPs. The petroleum differential claims after netting off have been settled through issuance of Term Finance Certificates worth Rs 85 billion to the banks.
However, due to persistent deficit the circular debt is piling up once again. This is one side of the picture. The other side is that as there has been a steep rise in the use of furnace oil for power generation in Pakistan, electricity has become prohibitively expensive.
If increased by another four percent, power tariff will make payment of electricity bills even more difficult for the consumers, particularly in Balochistan, Fata, Peshawar and Hyderabad, where the receivables are already the lowest, partly because of the tenuous security situation and partly because of the high level of poverty. Rationalisation of oil prices through removal of some of the non-essential taxes can therefore help the Discos augment their recoveries.
As Pakistan's external debt has already soared to over $50 billion, seeking a fresh credit line cannot be termed a rational response to the power sector's financial crunch. We believe that the Finance Ministry's proposal to generate the required capital by hedging assets of the entities involved in the circular debt with the banks under the concept of REIT was quite sound, which needs to be reconsidered to find a cost-effective way out of the power sector debt.
Going for a fast-track, six-month erasing of debt that has accumulated as a result of ill-considered policies over the years can produce many complications, including the burdening of power consumers further still.
There is a need to pursue a two-pronged strategy: start collecting the power bills in areas and regions, which have remained out of the bill collecting dragnet so far, with a possible concession of a lower tariff rate in keeping with the financial status of the province. Secondly, the government should undertake a comprehensive exercise to restructure the prevailing power tariff regime.
As energy fuels a country's economy, the government should order fast-track implementation of hydropower and coal projects, to keep the energy cost low. Instead of burdening the energy sector with more taxes, it should diversify levy of taxes to include sectors such as agriculture, real estate etc to make up the shortfall in tax collection.
Finance Ministry's proposal to go for REIT mechanism for Wapda/Pepco is attractive - why this is not utilised to settle the growing overdraft of Pakistan Railways? After all, the lands belonging to PR are all freehold and much more expensive than the land utilised for power and grid stations. Second, settling circular debt through TFCs does not address the tight liquidity conditions in the banking system. Injection of one billion dollars or Rs 80 billion from ADB takes care of this issue.