Evaluating design alternatives is a first step in introducing optimal water subsidy schemes. The definition of appropriate targeting criteria and subsidy levels needs to be supported by empirical analysis, generally an informationally demanding exercise. An assessment carried out in Panama revealed that targeting individual households would be preferable to geographically based targeting. Empirical analysis also showed that only a small group of very poor households needed a subsidy to pay their water bill.

May 2000 - An alternative to traditional subsidies for water and sanitation services is direct subsidies - funds governments provide to cover part of the water bill for households that meet certain criteria. Issues associated with such a subsidy are analyzed through a case study of Panama. As an alternative to traditional subsidy schemes in utility sectors, direct subsidy programs have several advantages: they are transparent, they are explicit, and they minimize distortions of the behavior of both the utility and the customers. At the same time, defining practical eligibility criteria for direct subsidy schemes is difficult and identifying eligible households may entail substantial administrative costs. Foster, Gomez-Lobo, and Halpern, using a case study from Panama, discuss some of the issues associated with the design of direct subsidy systems for water services. They conclude that: · There is a need to assess - rather than assume - the need for a subsidy. A key test of affordability, and thus of the need for a subsidy, is to compare the cost of the service with some measure of household willingness to pay. · The initial assessment must consider the affordability of connection costs as well as the affordability of the service itself. Connection costs may be prohibitive for poor households with no credit, suggesting a need to focus subsidies on providing access rather than ongoing water consumption. · A key issue in designing a direct subsidy scheme is its targeting properties. Poverty is a complex phenomenon and difficult to measure. Eligibility must therefore be based on easily measurable proxy variables, and good proxies are hard to find. In choosing eligibility criteria for a subsidy, it is essential to verify what proportion of the target group fails to meet the criteria (errors of exclusion) and what proportion of nontarget groups is inadvertently eligible for the benefits (errors of inclusion). · Administrative costs are roughly the same no matter what the level of individual subsidies, so a scheme that pays beneficiaries very little will tend not to be cost-effective. It is important to determine what proportion of total program costs will be absorbed by administrative expenses. · Subsidies should not cover the full cost of the service and should be contingent on beneficiaries paying their share of the bill. Subsidies for consumption above a minimum subsistence level should be avoided. Subsidies should be provided long enough before eligibility is reassessed to avoid poverty trap problems. · The utility or concessionaire can be helpful in identifying eligible candidates because of its superior information on the payment histories of customers. It will also have an incentive to do so, since it has an interest in improving poor payment records. Thought should therefore be given at the design stage to the role of the service provider in the implementation of the subsidy scheme. · The administrative agency's responsibilities, the sources of funding, and the general principles guiding the subsidy system should have a clear legal basis, backed by regulations governing administrative procedures. · To reduce administrative costs and avoid duplication of effort, it would be desirable for a single set of institutional arrangements to be used to determine eligibility for all welfare and subsidy programs in a given jurisdiction, whether subnational or national. This paper - a product of the Finance, Private Sector, and Infrastructure Sector Unit, Latin America and the Caribbean Region - is part of a larger effort in the region to evaluate and disseminate lessons of experience in designing policies to improve the quality and sustainability of infrastructure services and to enhance access of the poor to these basic services. The authors may be contacted at [email protected] or [email protected].

Electricity, natural gas, telecommunications, railways, and water supply, are often vertically and horizontally integrated state monopolies. This results in weak services, especially in developing and transition economies, and for poor people. Common problems include low productivity, high costs, bad quality, insufficient revenue, and investment shortfalls. Many countries over the past two decades have restructured, privatized and regulated their infrastructure. This report identifies the challenges involved in this massive policy redirection. It also assesses the outcomes of these changes, as well as their distributional consequences for poor households and other disadvantaged groups. It recommends directions for future reforms and research to improve infrastructure performance, identifying pricing policies that strike a balance between economic efficiency and social equity, suggesting rules governing access to bottleneck infrastructure facilities, and proposing ways to increase poor people's access to these crucial services.

In several ways, the reform introduced to the water sector in Conakry, Guinea, in 1989 under a World Bank-led project was remarkable. It showed that even in a weak institutional environment, where contracts are hard to enforce and political interference is common, private sector participation can improve sector performance. Why did the sector improve as much as it did, and what has inhibited reform?

This book reviews the prevalence and variants of consumer subsidies found in the developing world and the effectiveness of these subsidies for the poor. It places consumer subsidies in a broader social protection framework and compares them with poverty-focused programmes in other sectors using a common metric. It concludes that the most common subsidy instruments perform poorly in comparison with most other transfer mechanisms. Alternative consumption and connection subsidy mechanisms show more promise, especially when combined with complementary non-price approaches to making utility services accessible and affordable to poor households. The many factors contributing to those outcomes are dissected, identifying those that can be controlled and used to improve performance.