2014年-世界发展银行全球_Assessment_and_Action_Plan_to_Improve_Payment_for_Electricity_Services_in_the_Palestinian_Territories_252页_7mb

Summary of the Assessment and Action Plan to Improve Payment for Electricity Services in the Palestinian Territories

Core Content

The document presents an assessment and action plan aimed at improving payment for electricity services in the Palestinian Territories, which include the West Bank and Gaza Strip. It outlines the challenges in the electricity sector, particularly non-payment, and provides a detailed analysis of the causes and potential solutions.

Main Viewpoints and Key Information

Overview of the Palestinian Electricity Sector

• The Palestinian Territories are heavily reliant on electricity imports from Israel, with the Israeli Electricity Corporation (IEC) supplying around 88% of the electricity consumed.
• Electricity consumption in 2013 was 5,430 GWh (1,581 GWh in Gaza and 3,849 GWh in the West Bank).
• The electricity sector is governed by a complex institutional framework involving the Palestinian Authority (PA), the Israeli Electricity Corporation (IEC), and various distribution companies (DISCOs) and municipalities.

Non-Payment Issues

• Non-payment of electricity bills by Palestinian electricity distributors to the IEC has been increasing, with 37% of bills unpaid in the West Bank and 100% in Gaza between 2010 and 2013.
• The Top 10 + 1 group of non-payers represented 92% of the total non-payment to the IEC, with GEDCO being the largest non-payer, contributing 41.8% of total non-payments.
• Non-payment has led to significant financial strain on the PA, with Net Lending (a mechanism where the Israeli Ministry of Finance deducts from PA clearance revenues to cover unpaid bills) reducing the PA’s available revenues by 1 billion ILS (US$ 280 million) in 2012.

Electricity Losses

• Electricity losses in the Palestinian Territories were 23–30% between 2010 and 2013.
• These losses include both technical (distribution inefficiencies) and non-technical (theft) losses.
• GEDCO and JDECO reported very high losses, with GEDCO losing 247 million ILS in 2013 alone.
• Losses significantly impact revenue, with 726 million ILS (US$ 201 million) lost in the West Bank in 2013.

Collection from Customers

• The overall collection rate from end customers was better than expected, but declining in the West Bank and increasing in Gaza.
• Special areas such as refugee camps, Old Cities, and Area C have low collection rates and high losses.
• Poor payment performance by PA institutions and municipalities negatively affects other customers’ payment behavior.
• The collection rate in the West Bank dropped from 96% in 2012 to 83% in 2013, partly due to PA incentives and unilateral settlements of debts.

Tariff Analysis

• The purchase tariff is set unilaterally by the Israeli Public Utility Authority (PUA) and is not aligned with the cost structure of Palestinian electricity distributors.
• The sales tariff is set by the Palestinian Electricity Regulatory Commission (PERC) using a cost-plus approach, including operating costs and a profit margin.
• The tariff margin (difference between purchase and sales tariffs) decreased from 54% in 2011 to 40% in 2013, largely due to subsidies and increased electricity purchases from IEC.
• In Gaza, the purchase tariff is nearly equal to the sales tariff, and GEDCO should review its commercial tariff, which is 20% lower than the West Bank's.

Efficiency and Transparency of Distributors

• Palestinian electricity distributors, especially municipalities and village councils, have opaque financial systems and unclear payment mechanisms.
• Many municipalities have not segregated their accounts, and DISCOs lack transparency in financial reporting.
• The internal political environment influences the operations and financial behavior of electricity distributors.
• Distributors often cover operational costs, investment costs, and shareholder payments before settling bills with IEC, leading to non-payment.

Recommended Priority Actions

• Finalize the Power Purchase Agreement (PPA) with IEC to secure a lower wholesale tariff.
• PERC should set benchmarks for DISCOs to improve efficiency and reduce operational costs.
• Improve transparency and financial reporting by DISCOs and municipalities.
• Implement pre-paid meters in Gaza to improve collection rates.
• Address non-payment from PA institutions and municipalities to enhance overall payment performance.
• Introduce punitive measures for electricity theft and improve metering infrastructure.
• Review and adjust tariffs to reflect actual costs and improve financial sustainability.
• Develop a cohesive strategy involving all stakeholders to address the root causes of non-payment.

Conclusion

The assessment highlights the critical need for reforms in the electricity sector to improve payment performance, financial transparency, and operational efficiency. Non-payment remains a major challenge, affecting both the electricity sector and the fiscal position of the PA. A coordinated effort between the PA, donor community, and international stakeholders is essential to address these issues and ensure the sustainability of the electricity sector in the Palestinian Territories.