Electricity Restructuring: EDI briefing
Cooperative Governance and Traditional Affairs
29 May 2007
Meeting Summary
A summary of this committee meeting is not yet available.
Meeting report
PROVINCIAL AND LOCAL GOVERNMENT
PORTFOLIO COMMITTEE
29 May 2007
ELECTRICITY RESTRUCTURING: EDI BRIEFING
Acting Chairpersons: Mr M Lekgoro (ANC) and Mr W
Doman (DA)
Documents handed out:
EDI Restructuring presentation
Municipal Fiscal
Powers and Functions Bill [B9-2007]
Municipal Fiscal
Powers and Functions Bill: suggested amendments by National Treasury
National Treasury
Response to public hearings on the Bill
SUMMARY
EDI Holdings gave an overview of its structure and mandate, and the current
electricity supply industry structure. Challenges facing the electricity
distribution industry related to an inefficient fragmented industry structure
at present, inadequate maintenance of networks, inequitable treatment of
consumers across the country, inconsistent electrification performance and slow
and inconsistent rollout of free basic electricity.
The restructuring objectives, as contained in the White Paper of 1998 and the
Blueprint of 2001, were set out, and the history described up to the Cabinet
decision of 2006. That decision had resolved that six wall-to-wall Regional
Electricity Distributors (REDs) be established. The factors behind the decision
and the key considerations and implementation enablers were tabled and
explained.
EDI Holdings then described the future REDs and the key enabling legislation.
The Bill should be introduced by mid-2007 and the harmonisation of the pricing
structure should be finalised by early 2008. The new REDs would be public
companies with shareholding by Eskom and national and local government. Each
would encompass about 40 municipalities. Municipalities would continue to
derive electricity income. The system would be phased in over four main stages.
Some municipalities had already gone through the processes to ring fence their
electricity business while others still needed to sign the agreements and
prepare themselves. Eskom was 95% ready. Active participation from all was
vital and the Local Government Association had been cooperative. R2.1 billion
had been allocated for the set up of the REDs.
Questions by Members addressed the recruitment processes to the REDs, the
outstanding legislation, the problems in RED1, the possibility of
constitutional challenge, the shareholding and board membership, how the
boundaries of the REDs had been set, and whether this would affect cash flow of
municipalities. The distinction between subsidies and dividends was explained,
as was the decision to use public rather than municipal entities. Further
questions related to the costs of set up, the transfer of assets and personnel,
the form of the Memoranda of Understanding, metered billing, credit controls,
public participation and information, free basic electricity services and
control of surcharges.
The Committee adopted various Minutes from October 2006 to March 2007. The
Committee Report and further consideration of the Municipal Fiscal Powers and
Functions Bill would stand over to the next meeting.
MINUTES
Electricity Distribution Industry (EDI) Holdings: Restructuring Briefing
Ms Phindile Nzimande, CEO: EDI, briefly outlined the historical background
to EDI Holdings, which was set up to manage electricity distribution and to
achieve successful transfer from the current to the new systems. She explained
that Eskom handled around 60% of the distribution and 40% was handled by
municipalities. She noted that between the municipality and Eskom there was a
combined revenue of around R33.5 billion, and asset value of around R30
billion.
The Electricity Distribution Industry (EDI) faced many challenges. Because of
the fragmentation, the industry was inefficient. A network would operate best
on economies of scale, and that did not currently exist. Because there were so
many entities there were differing standards of maintenance. EDI Holdings had
calculated that there was around R5 billion in backlog of maintenance, and the
impact of the supply interruptions was currently costing R2.9 to R8.6 billion per
annum. A further challenge lay in the inequitable treatment of customers, with
a wide range of tariffs. The higher end of tariffs tended to be in the rural
areas. This was partially due to the history of the supply, but also because
local government was able to determine its own tariffs. There was still not
sufficient access to electrification, although access had improved to 73%
nationally. Institutional misalignment added complexity. The government had
decided upon the principle of free basic electricity (FBE) but because
different institutions were responsible for distribution there were problems in
quantum and practices of this service.
Government had decided some years ago that there was need to transform the
sector. The White Paper of 1998 identified the problems and the Blueprint was
adopted in 2001, which followed the objectives in the White Paper, and noted
that the transformation must be managed in a planned and non-disruptive manner.
The history from the early 1990s was tabled. Cabinet had taken a decision on 25
October 2006, based on the financial viability of the different regional
electricity distributors (REDs) and the response of the various models to
restructure policy objectives, to establish and implement six wall-to-wall
REDS, with Eskom being a shareholder in the interim period. The REDs were to be
established as public entities. The Department of Minerals and Energy (DME)
would oversee and control the REDs, and a strategy must be developed to deal
with capital investment requirements, a national electricity pricing system and
set up legislation.
The map of the six REDs was tabled. Their areas were set taking into account
economies of scale, benchmarking and critical mass. An urban and rural balance
was sought, so that rural electrification could be achieved. The implementation
costs should not violate significant geographical boundaries, and the
re-configuration of the network was minimised. Financial viability was an
important factor, as each RED must be able to fund its ongoing operations. The
statistical information for each RED was tabled.
The key considerations and implementation enablers were
presented. It was decided that governance would be fully set out in the EDI
Restructuring Bill, which was currently being developed by DME and which should
be introduced by mid-2007. A framework had to be developed for transfer of
assets. National Treasury was working on this. The pricing system was driven by
the energy regulator (NERSA) and the harmonisation framework and tariff should
be finalised by the first quarter of 2008. There would be a pricing system for
the whole country, setting out the supply costs of customers and what
cross-subsidisation measures could be applied. There also needed to be salary
harmonisation across municipal entities and Eskom. The capital investment
strategy would be attended to in the business case. The surcharge principles
were being addressed in the Municipal Fiscal Powers and Functions Bill.
Ms Nzimande described the future REDs. They would be created as new companies,
to which the electricity distribution businesses of both Eskom and
municipalities would be transferred. Shareholding would be split between Eskom,
National and Local Government. They would be service providers of choice to the
service authorities. Municipalities remained as the service authorities and the
REDs, as service providers, would collect surcharges, pay dividends, govern the
relationship between REDs and municipalities and streamline the services to
reduce duplication and create clear accountability. The areas covered by each
RED were large so decentralised service delivery was important. They would
enable implementation of government's social policies of electrification and
free basic electricity and would be able to support Government objectives of
universal access to electricity by 2012. They would become more efficient and
be better able to service customers at realistic tariff levels. Local
government would not be adversely affected as municipalities could continue to
derive income, using the current audited revenue as a base for calculation.
The RED future business model was tabled, but not dealt with in depth. It was
noted that the wires business and the retail business would be retained.
Ms Nzimande set out the principal legal instruments that would govern the
operation of REDs. These included the Public Finance Management Act (PFMA),
Companies Act, shareholder agreements, the King II Report, the Service delivery
agreement and the NERSA distribution licence. These pieces of legislation and
agreements would drive the various relationships between stakeholders.
Four phases were anticipated in establishing the REDs. In phase 1 readiness of
entities was being addressed, and this included ring-fencing electricity
services at municipalities in order to create the entities and transfer across
the assets. Phase 2 was the day on which the hand-over would occur. In Phase 3
the various municipalities (about 40 for each RED) would be gradually absorbed
during consolidation. The final phase dealt with business efficiency
improvement.
Some municipalities still needed to sign the accession agreements for
participation in the RED, to comply with the Municipal Systems Act, to ring
fence their distribution entities and to go through a due diligence summary.
EDI Holdings had created tool kits to assist the municipalities through these
procedures. The progress to date was summarised. Most of the metros had moved
well on the process, and Eskom had already amended its operational boundaries and
were 95% ready on the ring fencing.
EDI Holdings noted that it was not a distributor. It was dependent on active
and constructive stakeholder engagement. It had created a methodology and
processes. It would create a regional engagement forum in each place, and
thereafter there needed to be a steering committee and sponsors committee
established, followed by creation of technical committees and other working
groups. Local trade unions would be consulted. EDI Holdings would also work
closely with the municipalities themselves, and through the South African Local
Government Association (SALGA) who had been very cooperative. It could also
address the MinMEC. It also dealt with Premier's Coordinating Forums to ensure
involvement of all levels of government.
SALGA had indicated from the start that national government would need to fund
the transfer to the REDs and R1.2 billion had been given to EDI Holdings from
2006-09 to fund these activities. This would be dispensed to various levels.
EDI Holdings welcomed the Cabinet decision which had created certainty. It was
committed to working with all stakeholders, and would welcome the opportunity
to report progress from time to time to this Committee. She noted that EDI
Holdings had a limited life span geared towards project-management and bringing
the REDs into operation.
Discussion
Mr M Likotsi (PAC) referred to the challenges faced by EDI Holdings. He
had not heard any mention of the composition of the REDs. He noted that there
had been promises made and some councillors had been released so that they
could join the REDs, without any certainty as to the position. There had also
been some political problems affecting minority political parties. He agreed
that it was necessary for all to committed to the process so that it could be
effective.
Ms Nzimande said that the resistance to change had been anticipated. EDI
Holdings would need to have some structure to deal with tensions and
appointments. A robust process of recruitment would ensure the best people
would get the jobs. She indicated that constructive tension could lead to
robust discussion, and this would be encouraged where it could lead to positive
results. With regard to the potential abuse of office, there were sufficient
rules to deal with this. Profitability and sustainability were key issues, so
all municipalities needed to participate fully, and all offices would be used
to encourage participation.
Mr B Solo (ANC) indicated that this was a very technical presentation, and he
appreciated the interaction with EDI Holdings. The Committee had previously
been advised that one of the other Portfolio Committees would be passing the
legislation, but then there were also conflicting reports about whether the
municipalities were obliged to use REDs. He noted that there were still
numerous outages in the townships.
Ms Nzimande indicated that the outstanding legislation had been challenging,
but that DME, who were to introduce and apply the necessary legislation, had
indicated that it should be finalised this year. EDI could not take this
particular aspect further, but it believed that the targets would be met.
Ms Nzimande reported that in regard to the conflicts and outages, she could
confirm that RED1 was established as a pilot, in the absence of various legislation.
Such lack of legislation caused a problem, which was why the new plan indicated
that the legislation should be in place before proceeding further. There were
problems in RED1 with the contracts being called off, and eventually RED1 had
closed.
Mr Solo asked what was meant by the income being based on the current audited
revenue and asked what year would be used to set the base.
Ms Nzimande responded that current numbers indicated in the books were to be
audited and used as a basis.
Mr Solo asked what exactly would be changed, and asked for an indication of the
customers.
Ms Nzimande said that municipalities had not really been focusing specifically
on account payment and their ability to enforce payment at the moment was a
challenge. However, distributors, because they were dealing with specific
issues, would be more focused, and should also be able to implement packages
that could help the poorer customers.
Mr Solo asked about shareholding, how the board members would be appointed,
whether this would be the responsibility of the Minister, and whether there
would not be further capital required to pay those Board members.
Ms Nzimande stated that the appointment of board members and the shareholders'
agreements would regulate the board processes. The process of appointments
would need to be transparent. She noted that there was precedent for this; the
Board vacancies in RED1 had been advertised, stakeholders were involved, people
were interviewed and the Board was then appointed. Shareholders were able to
influence the board decisions. The costs for board members were regulated by
National Treasury. At the moment the rates were at about R3 800 per meeting.
The costs related to bringing in members of the Board would not necessarily
create a problem as they were in fact less than hiring in expertise. Benefits
would be gained in getting people from the private sector to share their
experience with government.
Ms L Mashiane (ANC) asked what informed the boundaries of the RED. She wondered
if there had been any correlation between the decision for six REDs and the new
provincial demarcations.
Ms Nzimande indicated that the reasons for the decisions were indicated on
slide 15 of the presentation, and were essentially technical. These criteria
and the recommendation for 6 wall- to-wall REDs was taken long before the
debate on provincial boundaries and the numbers were sheer coincidence.
Electricity was a monopoly network business, and tended to have its own
boundaries. The decision on the REDs tried not to interfere with those. She
indicated that a town in Northern Cape, Muir, was in fact supplied not by Eskom
but by Namibia Power. The electricity systems were not based on political
boundaries, but on technical considerations. In fact, the absolute ideal would
have been five REDs, but this would have involved two metros under one RED, and
therefore was not adopted.
Mr W Doman (DA) asked if there was likely to be any constitutional challenge.
Ms Nzimande indicated that currently local government had administrative
authority under the Constitution. Municipalities would be able to choose who
ran the electricity services. it would obviously be ideal for them to choose
the REDs. The City of Cape Town had used its constitutional empowerment to
undermine the government, and EDI would probably advise government to seek
constitutional amendments if municipalities did not cooperate. As previously
mentioned, full cooperation was imperative to achieve the targets.
Mr Doman was concerned about the cash flow of municipalities, and asked if any
decisions had been made on how this could be achieved. He indicated that if the
municipalities were to rely on dividends from the shareholding then there might
be a problem.
Ms Nzimande said that it was realised that electricity assisted with cash flow
as it was easier to collect from electricity than from other services. There
were two revenue flows: surcharge and dividends. The surcharge, was a levy
imposed on electricity by a municipality. This could be done by way of a percentage
surcharge, such as 20% on turnover. Surcharges would be paid on a regular
basis. The dividends, on the other hand, would accrue to the shareholders who
had contributed their assets to the REDs. EDI Holdings calculated that if
municipalities were permitted to impose the surcharges from the outset, they
would be able to generate sufficient funds. They would be asked not to take
dividends for a period of 10 years, as these would be needed for maintenance
and performance levels. The dividend was obviously dependent on financial
performance, but it was anticipated that over this period each local authority
would grow and the dividend would reflect the growth.
Mr Doman asked why it had been decided to use public entities and not municipal
entities as a model for the REDs.
Ms Nzimande replied that both options had been tabled. The Municipal Systems
Act (MSA) and Municipal Finance Management Act (MFMA) both prescribed very
precise and detailed regulatory regimes for municipal entities, including the
necessity to call board meetings, take budgets to various meetings, and
consult. It must be noted that each RED would consist of about 40
municipalities, and to create them as municipal entities having to follow every
procedure in respect of every municipality covered would be bureaucratically
impossible. The recommendation for a public entity was based on practical
considerations. A public entity would have a much straighter relationship
between state and entity and the shareholder compacts would govern a number of
issues. It was a tried and tested regime already.
Mr Doman asked about the costs of setting up the EDI and REDs, asking whether
the R1.2 billion allocation was to be the total cost.
Ms Nzimande confirmed that this was so. EDI Holdings had originally made
application for a larger amount but R1.2 billion was allocated. This was
considered sufficient to move the industry along, even if one or two matters
had to be postponed to a later stage when the REDs were self-supporting. EDI
Holdings would be able to apply for further funding if desperately needed but
did not anticipate doing so.
Mr Doman thought that the transfer of assets and personnel would be a huge
challenge, and asked if municipalities would have any leverage.
Ms Nzimande agreed that there were some challenges, but indicated that the
transfer of staff would have to comply with the Labour Relations Act. Five
trade unions were involved and EDI Holdings would ensure that issues concerning
staff were dealt with in sensitive ways, and that staff would not lose out on
pension or leave entitlements. In essence, the leverage of municipalities
resulted from the fact that they owned those assets being transferred. EDI
intended to adopt the most realistic methods of dealing with both issues.
Mr Doman asked about the cooperative agreement that municipalities were being
asked to sign, and why this was being done before introduction of the
legislation.
Ms Nzimande indicated that the cooperative agreements took the form of
Memorandums of Understanding (MOUs) because the legislation was not yet in
place. The Memorandums indicated the steps that Municipalities needed to take
in preparation for the legislation, and were high level agreements to cooperate
for purposes of moving forward.
The Acting Chairperson asked whether metered billing would be continued.
Ms Nzimande indicated that the national flow was indicated on Slide 6, and both
municipalities and Eskom presently undertook the billing. This would be
replaced by the REDs.
The Acting Chairperson asked if it was anticipated, in regard to the surcharge,
that REDs would continue to collect on behalf of municipalities.
Ms Nzimande said that it was intended that credit control could be offered by
REDs to municipalities. It should be possible for municipalities to agree with
REDs that they could switch off supply if instructed to do so by the
municipality in relation to outstanding charges.
Ms K Magau (ANC) noted that current challenges included lack of reliability of
supply. She noted that, especially in the rural areas, people would complain
that they could never get hold of anyone, and if they did, they could not get
answers. A number of defaulting customers were simply dissatisfied. There were
also problems in billing.
Ms Nzimande said that these problems were noted. At the moment the Municipality
was the service provider and the mechanics were a problem. A separate service
provider dedicated to electricity only would mean that all complaints should be
directed to a specific number, rather than to a general municipality
switchboard. The REDs intended to take the supply to another level. At the
moment the Regulator was limited in his ability to influence the
municipalities. However, the Regulator would have control over the new REDs and
would have the power to impose penalties so these issues should be dealt with
by the REDs
Mr Likotsi raised the question of public participation, and noted that people
became sceptical of being told after the event what would happen if not
informed that changes would occur. He asked how the roll out would happen and
how the citizens would be informed what was taking place.
Ms Nzimande replied that EDI Holdings had plans for public participation but
this was a question of timing. There would be an information campaign once
matters had reached a sufficiently certain stage that questions could be
answered, and Members in various areas would be notified.
Mr Likotsi asked for further clarity on shareholding, asking if this would be
confined to a particular group, and whether the Broad Based Black Economic
Empowerment legislation would impact upon it.
Ms Nzimande stated that the shareholding would be limited. Eskom and government
would be the shareholders. National government still contemplated state
ownership of electricity and was not intending to privatise. For these reasons
the empowerment legislation would not apply.
Mr I Mogase (ANC) noted the large cost to the economy of supply interruptions
and asked what steps EDI Holdings was taking to ensure that there were no
interruptions.
Ms Nzimande reiterated that EDI Holdings did not have operations within its
control so it could only assist entities to ensure that they continued to
invest in upgrading and maintaining the services. If municipalities would not
maintain their services, then they would receive less contribution, as the
value of the assets would be assessed at the time of transfer into REDs. EDI
Holdings stressed to current suppliers the need to invest back in
infrastructure, and had been assisting , with the Regulator, in setting
guidelines.
Mr Solo asked for details of interventions into cable theft.
Ms Nzimande responded that a number of entities suffered from cable theft -
including Telecom, railways and Eskom. Copper cable had a high value in the
scrap market. All those involved in cabling were discussing measures and would
deal with the theft problem.
Mr Doman asked about free basic services, and asked if the municipalities would
still get an equitable share.
Ms Nzimande noted that municipalities would be regarded as service authorities
and could effectively assist in free basic electricity. It was anticipated that
this should carry on.
The Acting Chairperson asked if there was any considerations given to whether
the surcharges could contribute to inequities.
Ms Nzimande indicated that the surcharges were a tax, and would be regulated.
The reasonableness of the surcharges would be considered taking into account
general considerations around economic cohesion and lowering of the costs of
doing business.
Municipal Fiscal Powers and Functions Bill (MFPFB)
Mr W Doman took over as Acting Chairperson.
The Acting Chairperson indicated that the caucuses of the different parties
would deal with the Bill, which was due to come before the House in the following
week. He indicated that the Bill fell under the Portfolio Committee on Finance
but this Committee had received a briefing on the Bill and had received input
from National Treasury on its responses to the public hearings.
Mr Solo wondered whether anything further was expected from the Committee.
The Committee Secretary noted that the Portfolio Committee on Finance had met
the previous Wednesday, and that some members from this Committee were also
present. Their Chairperson had asked this Committee simply to produce a report
giving its views on the legislation.
Mr Likotsi indicated that since many members were not currently present, it
would be preferable to stand the matter over.
Members agreed with the suggestion, and noted also that they would need to
revert to their caucus. The matter would be raised, if necessary, at the
following meeting of the Committee.
Minutes of previous meetings: October 2006 - May 2007
The minutes of the meetings of 17 October 2006, 27 February , 6 March, 7
March, 14 March, 15 May, and 22 May 2007 had been circulated, and were adopted
by Members.
Committee Annual Report
The Committee Secretary indicated that the Chairperson, Mr Tsenoli, had
indicated that there were one or two matters on the Committee Report that he
wished to raise with Members.
It was resolved that adoption of the Committee Annual Report must stand over to
the next meeting.
The meeting was adjourned.
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