ࡱ> ~` <bjbj ¦1%4("""8#$@#RG($:b$"$$$(J](y(FFFFFFF$HhpJF,'|(,,F$$ G818181,$$$F81,F8181Bv6C$$ @]}&".0BC"G0RGBdKJ/~dK(CdKC$(V)81*+_(((FF0p(((RG,,,,$"" Struggling for financing access to water supply and sanitation services for all in Brazil  ________________________________________________________________________ Marcos Helano Fernandes Montenegro and Nyedja Marinho 1. Current situation Access to water supply, sanitation and solid wastes collection in Brazil (2000) according to size of municipalities is showed in next table, where can be verified that smaller municipalities present a lower coverage than higher ones. Population % of munici-palitiesCoverageWater supplySewerageSolid Wastes CollectionNetworkSeptic tanksNetwork + septic tankLess than 30.000 inhab83,455,620,910,731,650,3More than 30.000 inhab16,683,753,516,469,886,5Source: Demographic Census, 2000 IBGE The following table provides some relevant information about water supply and sanitation provision in Brazil according to Water Supply and Sanitation National Information System ( SNIS): (Currency:R$ million) Year of reference: 2004Regional companies under Federative States controlPrivate Service Providers (concessionaires)Municipal utilities and companies under public controlTotalNumber of operators2436314374Annual revenues 14.0316632.61117.305Annual expenses13.5386292.24316.410Investments2.5841483713.103Water connections 26.252.7481.364.0616.572.49634.189.305Sewer connections10.033.057433.7124.230.17414.696.943Average tariff (R$/m3)1,581,671,031,47Water losses(%)40,1048,3040,5040,40 There are many obstacles in Brazil to overcome in order to reach universal access to water supply and sanitation. Among them, some related to structural aspects: deep social inequality (perverse income distribution) with high level of poverty for a great amount of population and, as should be expected, the lack of access to services is concentrated in lower income population strata which live in peri-urban areas, slums and in the smaller municipalities; the expansion of water supply and sanitation systems in lower income areas of bigger cities where other relevant components of the urban infrastructure are frequently not available, requires important additional investments; INCLUDEPICTURE "../../Cliente/Desktop/favela3.gif" \* MERGEFORMAT  in much of the situations in the country side, the solution of access to adequate water supply and sanitation has as pre-requisite to resolve land reform conflicts and set population on the territory. Regarding economic aspects, it shall be highlighted: the strong restrictions on new public debts, which prevent municipal and state governments and public utilities to borrow funds in order to rehabilitate and expand systems from the financial institutions regulated by the Central Bank; the fiscal reform which favors primary surplus and public debt payments and restrains strongly public investments and simultaneously raised the basic interest rates to the level of the highest in the word; In 1998, facing an external debt crisis, Brazil asked for a new loan to IMF of US$ 41 billion. The terms and conditions of this loan emphasized a fiscal reform that would privilege the generation of fiscal surpluses to pay public debts interests, reducing the ordinary public expenditures, raising interest rates, privatizing public companies and other assets, and preventing the public sector to take new loans to finance investments. It is worth emphasizing that instead of what was publicly said, the public debt increased enormously, fed by the current interest rates policy which reached the highest levels relatively to GDP. However, public companies which were not privatized operated in a quite difficult situation with no access to third-owned funds. Graph below shows the estimation of expenses due to interest rates on public debts related to GDP. The second graph shows evolution: total public debt, that one from states and municipalities and from public companies under central, states and municipalities control. It is possible to verify, that even though there is a great effort to generate surpluses, the public debt continues to increase.   the high level of tax burden that impact negatively the utilities, reducing their ability to invest;  Regarding the provision of water supply and sanitation, it should be pointed: the failure of a model established in the 60s and 70s all over the country based on economies of scale and scope, named PLANASA, which encouraged the creation of states utilities; (the following map shows, painted in pink, States whose public companies were not able to cover their total costs in 2004);  the lack or inexistence of regulation, including lack of planning and contracts named as concessions which do not follow any national rule tariffs are not monitored by the granting power; only one concessionaire monitoring many contracts cross subsidy has no transparency; the failure of private concessions as an alternative to fund investments to expand coverage; the absence of the national law establishing general guidelines according to the Federal Constitution, as well as setting the National Policy to be followed by the Union and the ones who contract with it; the opposition to a new model of provision from states who currently rule utilities that are not constrained by economic regulations. 2. Financing the services Tariff policies are a general practice to recover costs in the provision of water supply and sanitation services. The grants from federal, states and municipal governments decreased due to restrictions aiming fiscal surpluses to pay interest rates on public debts. On the other hand, political negotiations spill the scarce funds available and damage the application of these resources, especially in order to assist the poor population. So, it has been difficult to reach an effective application of fiscal resources aiming to subsidize investments needed to build infrastructure to the poorer with no sanitation. Regarding funds to be lent to service providers, it is important to emphasize that interest rates in Brazil are among the highest in the world. However, Brazil has a particular money supply to fund water source and sanitation investments (and housing and other components of urban development ones) whose interest rates are lower than regular ones available in the private market in the country. This interest rate makes loan costs compatible with the provision of water supply and sanitation based on tariffs. This revolving fund, named FGTS, has been in place since 1966, under public control formed by mandatory contributions from workers and employers. However, as already seen, fiscal reform restricted money supply to public sector. Decisions of the National Monetary Council prevented FGTS to contract new investments in the sector from 1998 to 2003. As a result of these restrictions, there were almost no contracts with public borrowers from 1998 to 2002 as can be seen in the next graph. Figures taken from last January showed the following allocation of FGTS assets: R$ 74,76 billion allocated in housing and water supply and sanitation projects; and R$ 53,08 billion allocated in public bonds, deviated from its legal destination which is financing housing and sanitation investments. In the context of water supply and sanitation, the period from 1998 to 2002, access to funds was impossible (FGTS, FAT or any other source), except from international source whose loans are taken in foreign currency. In the same period, the private concessions initiatives increased. However, the majority of the private based solutions failed. In some circumstances, the type of private concession to private operators which included the payment of royalties to the granting authority, had impacted negatively on tariffs and made even more difficult to the service provider reach the contracts goals. 3. The achievements of the period 2003-2006 In the end of 2003, in the current government, after hard negotiations mainly between Ministry of the Cities and Ministry of Finance, a decision from the National Monetary Council allowed banks to lend R$ 3,7 billion from FGTS and other funds to public borrowers invest exclusively in water supply, sanitation and solid waste management projects. In 2005, a new authorization to invest took place, adding R$ 2,2 billion to be borrowed by public entities and applied in water supply, sanitation, solid waste management and urban drainage projects. In order to pick up the best projects, technical and institutional criteria were adopted in the selection of proposals presented by interested public institutions at public calls, leaving on a second plane the chronological criterion of registration on a Central Bank system. Three arguments were fundamental to obtain authorization from the National Monetary Council to re-establish the financing flow to the public sector: the default of public takers under this fund is near zero in Brazil; the evident decrease of the total debt to FGTS related to water supply, sanitation and related projects taken by public borrowers (from R$ 31 billion in 1996 to R$ 25,3 billion in 12/31/2005, or 14%);  EMBED Excel.Chart.8 \s  since 1999, the return from takers are higher than R$ 3,2 billion, while in this period occurred the highest annual withdraw R$ 703 million, in 1999; the lowest occurred in 2003 (R$ 117 million).  EMBED Excel.Chart.8 \s  4. Steps forward to reach a new era in financing the services The achievements of 2003 and 2005 were very important to pave the way for a new era after the ending of the IMF loan agreement with Brazil. However, it is necessary to find out a new arrangement which can overcome the lack of stability of the current situation characterized by a policy of stop-and-go of funds to invest in order to organize actions and planning in the sector. To reach this it is necessary to follow the public budgets, which include fiscal and non-fiscal sources of funds (FGTS e FAT). For this the Central Bank of Brazil cannot consider public investments for public operators as new public debts; second, regular money supply available from federal budget must be implemented. The selection of project must be technical parameters based in order to reach efficiency and to strengthen institutional capability of operators. An additional problem is the level and nature of taxes burden on operators which weaken their ability to invest. A solution for this is to reduce the tax burden on utilities billing. As an overall measure, it is important to approve and implement guidelines for planning, regulation and monitoring services provision aiming a greater efficiency of operators and a better public control under society monitoring. It will be necessary to overcome the resistance to changes from states who control public utilities and provide services with no regulation. A Federal policy for financing for the sector shall encourage economies of scale and scope and creation of regional operators whose operation shall be based on regional plans, a regional contract celebrated by municipalities consortium and regional tariffs. This arranges shall overcome the problem of multiple contracts of different municipalities with the same utility and a single tariff which make economic regulation impossible. Under a more appropriated model, regulation and contracting will be managed by an association of municipalities (public consortium). Before ending, it is worth to remember that, as is said by Amir Khair, the most important factor for public revenues growth is economic growth. Combining economic growth with a policy to reduce tax levels and to fight against tax evasion, can keep the real value of revenues and contribute to lower the tax burden of the country, the inflation and the default, so improving the competitiveness of companies and generating development, employment and reducing social pressure. Khair also says: the major public expense is interests payments which have been accounting for 10% of the GDP in the last six years. Around 70% are due to the monetary policy of the Central Bank which squeezes the fiscal situation of the country without being effective in dealing with inflation. The gradual decreasing of the interest rate to bearable levels of emergent countries (8% a year) would allow the Central Government to save R$ 100 billion a year. This value is more than what is necessary to meet all Brazilian needs in social and infrastructure programs.  In this article we are examining only water supply and sanitation services.  Engineer, Director of SNSA National Secretariat Environmental Sanitation, Ministry of the Cities, Brazil.  Economist, Senior Consultant of Water Sector Modernization Program, SNSA, Ministry of the Cities, Brazil.  The taxes share on utilities revenues doubled from 2000 to 2004.  Subsidies to service providers to expand and rehabilitate systems.  In the case of Manaus, capital of Amazonas state, the private operator bought the concession for US $100 million.  Poderiam ser criadas como subsidirias das atuais companhias estaduais de saneamento  Khair, Amir. Finanas Pblicas 2000 a 2003. Draft paper, 2005.     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 = <  ;   ;  ;  ; `ih0   3 A@@   c5Desembolso Realizado - Operaes Contratadas at 20055Previso de Desembolso Operaes contratadas at 2005Valores em R$ 1,00AnoMsValor_DesembolsadoDesembolso Saldo CredorDesembolso Saldo Residual DesembolsoTotal_Obs: foram includos os valores referentes a saldos de contratos com prazo de carncia vencida.+Contratao - Operaes com o Setor Pblico MsAssinaturaAnoFinanciamento_OriginalDezJanFevMarAbrMaiJunJulAgoSetOutNov/Projeo de contratao do FGTS - Setor PblicoOramento de 2005 a 2008 Contratao OramentoDObs: inclui as operaes do oramento de 2005 ainda no contratadas.&Projeo de Desembolso - Setor Pblico<Operaes a serem contratadas com o Oramento de 2005 a 2008\Projeo de retorno das operaes a serem contratadas com o Oramento do FGTS de 2005 a 2008Ms/Ano AmortizaoJuros Encargo total!Critrios Utilizados na projeo:sContratao integral, em junho de 2006, dos recursos alocados aos agentes financeiros com base no oramento de 2005 2006 a 2009uObs: O valor contratado foi atualizado para Dez/05, a partir da data da contratao do financiamento, com base na TR."Parmetros utilizados na projeo:C1 - Incio do desembolso das operaes 12 meses aps a contratao;13 - Desembolso integral dos recursos contratados.;2 - Desembolso em 18 parcelas , calculadas de forma linear;M1 - Prazo de retorno 20 anos, iniciando 4 meses aps o trmino do desembolso;2 - Taxa de juros 6,5% ao ano;,3 - Retorno integral dos recursos aplicados;*4 - Sistema de Amortizao - Tabela Price;Posio Saldo DevedorEstoque da dvidaDvida Rolada pela 8727Dvida no Rolada pela 8727Ano msRObs: Critrios utilizado para a projeo de retorno do Sado Devedor em 31/12/2005:1 - Prazo mdio de 98 meses;(2 - Taxa de Juros mdia de 7,01% ao ano;*3 - Sistema de Amortizao - Tabela Price.4Retorno das Operaes de Crdito com o Setor PblicoValores originais#Valores atualizados para 31/12/2005Valor_Atualizado_Dez05Financiamento_Dez/05KProjeo do retorno do Saldo Devedor do Setor Pblico apurado em 31/12/2005yObs: Critrios utilizado para a projeo de retorno dos Valores ainda no desembolsados (operaes contratadas at 2005):C4 - Incio da amortizao em janeiro do ano seguinte ao desembolso.2FGTS - Contratao - Operaes com o Setor Pblico\Contratao integral do oramento para o Setor Pblico distribudo na forma da tabela acima.3Histrico de Contratao (R$ 1.000,00 de Dez /2005)*Estoque da dvida (valores em R$ 1.000,00)2Valores em R$ 1.000,00 atualizados para 31/12/2005;FGTS - Retorno das Operaes de Crdito com o Setor Pblico,Desembolsos - Operaes Contratadas at 2005#Saldo Anual (Retorno - Desembolso) Subtotal 1 Subotal 2Total (Valores em R$ 1,00)WProjeo de Retorno dos saldos ainda no Desembolsados (operaes contratadas at 2005)Ver!!!!&Retorno operaes contratadas at 2005/Retorno operaes a serem contratadas aps 2005Previso de retorno at 2025*Desembolsos operaes contratadas at 20052Desembolsos operaes contratadas a partir de 2006!Projeo de Contratao (R$ 1,00) Projeo HistricoAmortizao operaes Operaes a contratar Operaes at 2005Valores em R$ 1.000,00%Dvida Rolada pela 8728NaturezaValor.Valores em R$ 1,00 atualizados para 31/12/2005Saldoj6 }7P88c9:@<k=>7@U 8B NC CX  @MSymantec Fax Starter Edition 4XLetterSWFX" dXX~?~?3` >;` ><` >=@fF33d23 M +4  3Q: SaldoQ+ ; Q ; Q3_4E4D $% M 3O&=Q4$% M 3O&<Q4FAt 3OZt 3 bP P PZR R R RR RV Vd#MSS43*N#M! 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-N  3 --  tB C>DEF >> > @`u--N  3 u--  tB C>DEF >1 > @`u--P  BC%DEdFnVbo{ {obV%J%1%%%%     % >JV48@`\-b-  BC DE4F< {ob V J 1 %  @-b-\  BC%DEdFnVbo{ {obV%J%1%%%%     % >JV48@`\-b-HB  # bi-c-HB  # u--  tB C DEF @`--N  3 --N  3 ĝ--  tB C DEFΥ @`--  tBC DEFح  @`--N  3 --N  3 --N  3 {--N  3 o-{-  tB C DEF @`b-o-N  3 V-b-  tBC DEF @`V-W-P  BCDEdFnVbn{{ { n b JJ1% %=JV48@`V--  BC DE4F< {{nb J J 1 %  @V--\  BCDEdFnVbn{{ { n b JJ1% %=JV48@`V--HB  # --HB  # V-W-N  3 !d+!-N  3 !d+!-  tB CBDEF BB B @` d+!-  tB CCDEF 6C 6 @` p+ -N  3  p+ -N  3  p+ -N  3  p+ -N  3  p+ -N  3  p+ -N  3  p+ -N  3  p+ -  tBCCDEFC6C @` p+ -P  BzCDEdFnVbnzzz z z nbV=1    %1=V48@` W+!p+  BzC DE4F< zzznb V = 1  @ -!-\  BzCDEdFnVbnzzz z z nbV=1    %1=V48@` W+!p+HB  # !d+!-HB  #  p+ -  tBCnDEFnn n @`~!8-!-N  3 r!D-~!-N  3 ĝf!D-r!-  tB CoDEFΥ bo b @`Y!D-f!-  tB CoDEFح oo o @`M!D-Y!-N  3 A!P-M!-N  3 (!P-A!-N  3 !P-(!-N  3 !P-!-  tB CoDEF oo o @`!D-!-N  3 !D-!-  tBCoDEFobo @`!D-!-P  B{C%DEdFnVco{ { { {ocVJ%>%%%% %  % 1>V48@`!+-~!P-  B{C DE4F< {{ocV J > %  @!-~!-\  B{C%DEdFnVco{ { { {ocVJ%>%%%% %  % 1>V48@`!+-~!P-HB  # ~!8-!-HB  # !D-!-  tBCDEF  @`"+"-N  3 "+"-N  3 "+"-  tBCDEF @`"+"-  tBCDEF  @`"+"-N  3 s","-N  3 [",s"-N  3 O",["-N  3 B",O"-  tB CDEF   @`6"+B"-N  3 6"+7"-  tB CDEF   @`*"+6"-P  BC%DEdFnbnn{ {nnV%I%1%%%%     % =Ib48@`*"+",  BC DE4F< {nn V I 1 %  @*"-"-\  BC%DEdFnbnn{ {nnV%I%1%%%%     % =Ib48@`*"+",HB  # "+"-HB  # *"++"-  tB CXDEF XX X @`#N,+#-N  3 #Z, #-N  3 ĝ#Z,#-  tB CYDEFΥ LY L @`#Z,#-N  3 ح"f,#-N  3 "f,"-N  3 "f,"-N  3 "f,"-N  3 "f,"-N  3 "f,"-N  3 "f,"-  tBCYDEFYL Y @`"Z,"-P  BC%DEdFnbbnz zznb%U%I%1%$%% %%   $ =Ib48@`"A,+#f,  BC DE4F< zznb U I 1 $  @"-+#-\  BC%DEdFnbbnz zznb%U%I%1%$%% %%   $ =Ib48@`"A,+#f,HB  # +#N,,#-HB  # "Z,"-  tBC/DEF// / @`R$w)S$-N  3 R$)S$-N  3 F$)R$-  tB C0DEF #0 # @`9$)F$-  tB C0DEF 00 0 @`-$)9$-N  3 $)-$-N  3 $)$-N  3 #)$-N  3 #)#-  tBC0DEF00 0 @`#)#-N  3 #)#-  tB C0DEF 0# 0 @`#)#-P  B{C%DEdFnVbo{ { { {{obV%>%1%% %     % 1>V48@`#k)R$)  B{C DE4F< {{{ob V > 1  @#-R$-\  B{C%DEdFnVbo{ { { {{obV%>%1%% %     % 1>V48@`#k)R$)HB  # R$w)S$-HB  # #)#-N  3 $*$-  tB CDEF   @`$*$-N  3 ĝ$*$-  tBCDEFΥ @`$*$-   tBCDEFح  @`$*$-N   3 $*$-N   3 w$*$-N   3 j$*w$-N   3 ^$*j$-  tB CDEF   @`R$*^$-N  3 R$*S$-  tBCDEF @`R$*S$-P  B{C%DEdFnVbn{ { { { nbbI%=%%%% %  % 1=V48@`R$*$*  B{C DE4F< {{nbb I = %  @R$-$-\  B{C%DEdFnVbn{ { { { nbbI%=%%%% %  % 1=V48@`R$*$*HB  # $*$-HB  # R$*S$-P  BzCDEdFnUbnzzz z z n bI=$   1=U48@`%-%-\  BzCDEdFnUbnzzz z z n bI=$   1=U48@`%-%-N  3 n&),z&-N  3 n&),o&-  tB C}DEFĝ }} } @`a&),n&-  tB C~DEFΥ q~ q @`U&5,a&-N  3 حI&5,U&-N  3 =&5,I&-N  3 $&5,=&-N  3 &5,$&-N   3  &5,&-N ! 3 %5, &-N " 3 %5,&- # tBC~DEF~q~ @`%5,&-P $ B{CDEdFnVboo{{ o o bVJ>%  1>V48@`%,z&5, % B{C DE4F< {oobV J > %  @%-z&-\ & B{CDEdFnVboo{{ o o bVJ>%  1>V48@`%,z&5,HB ' # z&),{&-HB ( # %5,&-P ) BCDEdFnVbnz z n bV=1$    $1=V48@`&'-'-\ * BCDEdFnVbnz z n bV=1$    $1=V48@`&'-'- + tBCDEF @`(,(-N , 3 (,(-N - 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