Issues Paper - Review of recycled water prices for public ...

1 Review of recycled water prices for public water utilities Sydney water Corporation Hunter water Corporation central Coast Council Essential energy Issues Paper water September 2018 ii IPART Review of recycled water prices for public water utilities Independent Pricing and Regulatory Tribunal (2018) With the exception of any: (a) coat of arms, logo, trade mark or other branding; (b) third party intellectual property; and (c) personal information such as photos of people, this publication is licensed under the Creative Commons Attribution-NonCommercial-NoDerivs Australia Licence. The licence terms are available at the Creative Commons website: IPART requires that it be attributed as creator of the licensed material in the following manner: Independent Pricing and Regulatory Tribunal (2018). The use of any material from this publication in a way not permitted by the above licence or otherwise allowed under the Copyright Act 1968 (Cth) may be an infringement of copyright.

2 Where you wish to use the material in a way that is not permitted, you must lodge a request for further authorisation with IPART. Disclaimer IPART does not guarantee or warrant, and accepts no legal liability whatsoever arising from or connected to, the accuracy, reliability, currency or completeness of any material contained in this publication. Information in this publication is provided as general information only and is not intended as a substitute for advice from a qualified professional. IPART recommends that users exercise care and use their own skill and judgment in using information from this publication and that users carefully evaluate the accuracy, currency, completeness and relevance of such information. Users should take steps to independently verify the information in this publication and, where appropriate, seek professional advice. Nothing in this publication should be taken to indicate IPART s or the NSW Government s commitment to a particular course of action.

3 ISBN 978-1-76049-247-2 The Independent Pricing and Regulatory Tribunal (IPART) IPART provides independent regulatory decisions and advice to protect the ongoing interests of the consumers, taxpayers and citizens of NSW. IPART s independence is underpinned by an Act of Parliament. Further information on IPART can be obtained from IPART s website: Review of recycled water prices for public water utilities IPART iii Tribunal Members IPART members for this Review are: Dr Peter J Boxall AO, Chair Mr Ed Willett Ms Deborah Cope Enquiries regarding this document should be directed to a staff member: Jean-Marc Kutschukian (02) 9290 8453 Cato Jorgensen (02) 9113 7724 Invitation for submissions IPART invites written comment on this document and encourages all interested parties to provide submissions addressing the matters discussed. Submissions are due by 12 October 2018 We would prefer to receive them electronically via our online submission form < >.

4 You can also send comments by mail to: Review of recycled water prices for public water utilities 2019 Independent Pricing and Regulatory Tribunal PO Box K35 Haymarket Post Shop NSW 1240 Late submissions may not be accepted at the discretion of IPART. Our normal practice is to make submissions publicly available on our website < > as soon as possible after the closing date for submissions. If you wish to view copies of submissions but do not have access to the website, you can make alternative arrangements by telephoning one of the staff members listed on the previous page. We may choose not to publish a submission - for example, if it contains confidential or commercially sensitive information. If your submission contains information that you do not wish to be publicly disclosed, please indicate this clearly at the time of making the submission. However, it could be disclosed under the Government Information ( public Access) Act 2009 (NSW) or the Independent Pricing and Regulatory Tribunal Act 1992 (NSW), or where otherwise required by law.

5 If you would like further information on making a submission, IPART s submission policy is available on our website. iv IPART Review of recycled water prices for public water utilities Contents 1 Introduction 1 What will this Review include? 1 Why are we conducting this Review ? 5 Who does this Review apply to? 6 How will we undertake this Review ? 7 What is the structure of this Issues Paper ? 8 List of Issues for stakeholder comment 9 2 recycled water in context 13 What is the current market for recycled water and related services ? 13 What are the key drivers of recycled water schemes? 14 What recycled water schemes are the subject of this Review ? 16 How has recycled water been considered in other reviews? 18 3 How should we regulate prices for recycled water and related services ? 26 How does IPART s legislative framework affect the regulation of recycled water and related services ? 26 How should we regulate prices for recycled water and related services ?

6 28 4 Pricing objectives and cost recovery framework for recycled water 32 What are our objectives for pricing recycled water ? 32 What is our cost recovery framework? 35 Our framework is consistent with integrated water resource planning 39 What are our pricing principles for recycled water ? 40 5 Mandatory recycled water schemes 42 How should we define mandatory schemes? 42 Do the existing pricing guidelines for mandatory recycled water schemes remain appropriate? 43 How should costs be recovered for mandatory schemes? 46 Pricing to recycled water customers of mandatory schemes 47 Should we retain procedural requirements for recycled water charges? 52 6 recycled water developer charges 53 We apply a similar methodology for all developer charges 53 What changes should we make to the recycled water developer charges methodology? 56 What changes should we make to procedural requirements for recycled water developer charges? 60 Does the developer charges framework unduly create barriers to the uptake of recycled water schemes?

7 62 7 Voluntary recycled water schemes 66 How should costs be recovered from customers of voluntary schemes? 66 8 recycled water cost offsets 70 Improving our guidelines for avoided and deferred costs 70 Review of recycled water prices for public water utilities IPART v The nature of avoided and deferred costs 71 Calculation of avoided and deferred costs 74 Assessment of avoided and deferred cost claims 77 Establishing guidelines for external benefits 80 The nature of external benefits 81 Calculation of external benefits 82 Assessment of external benefits 83 A Matters to be considered under section 15 of the IPART Act 84 B Independent Pricing and Regulatory Tribunal Orders 85 C National water Initiative Pricing Principles 89 D Summary of 2006 and 2011 guidelines for calculating and assessing avoided costs 91 E Glossary 93 vi IPART Review of recycled water prices for public water utilities Review of recycled water prices for public water utilities IPART 1 1 Introduction The Independent Pricing and Regulatory Tribunal (IPART or we )

8 Is conducting a Review of pricing arrangements for recycled water and related services provided by: Sydney water Corporation (Sydney water ) Hunter water Corporation (Hunter water ) the central Coast Council (formerly Gosford City and Wyong Shire Councils), and Essential energy (as part of the water and wastewater services provided in Broken Hill). What will this Review include? This Review will cover our pricing arrangements for the following government monopoly services : recycled water : wastewater or stormwater that has been collected and treated by a public water utility so that it can be reused for urban irrigation, industrial processes, environmental flows, and residential (non-drinking) uses such as garden watering and toilet flushing. Sewer mining: when a third party extracts wastewater from a public water utility s wastewater system, treats the wastewater and produces recycled water . Stormwater harvesting: when a third party extracts stormwater from a public water utility s stormwater system, treats the stormwater and produces recycled This Review will not set prices for these services .

9 Rather, prices would be set as part of a public water utility s broader retail price Review or under recycled water scheme-specific price determinations. These prices would reflect the pricing arrangements and methodologies adopted in this Review . For Sydney water and Hunter water , the revised pricing arrangements would apply to their upcoming 2020 price reviews. Given that we are currently reviewing prices for central Coast Council and Essential energy to apply from 1 July 2019, the application of the revised pricing arrangements for recycled water and related services will be deferred to their next scheduled price In 2006, we established Pricing arrangements for recycled water and sewer mining (2006 Guidelines) for Sydney water , Hunter water and the central Coast We also made a determination for recycled water developer charges. Our current Review is effectively 1 In effect, in this Review we are considering pricing arrangements of the output of water recycling when provided by a public water utility and the inputs to water recycling when provided by a third-party.

10 2 Unless, as proposed in this Issues Paper , we are requested to undertake a scheme specific Review . 3 IPART, Pricing arrangements for recycled water and sewer mining Sydney water Corporation, Hunter water Corporation, Gosford City Council and Wyong Shire Council - Final Report, September 2006. Henceforth: IPART, 2006 Guidelines. 2 IPART Review of recycled water prices for public water utilities revisiting our 2006 Guidelines and the accompanying determination of recycled water developer charges. Through this Review , we will seek to establish a pricing framework that is flexible and administratively simple to implement, yet promotes efficient investment in and uptake of recycled water . Whilst we have identified the following as key Issues for this Review , we welcome stakeholder comment on any aspect of our 2006 Guidelines: How should we regulate recycled water and related services ? We will consider whether a less intrusive approach to regulating recycled water and related services remains appropriate.