Fiscal Risks Statement
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Fiscal Risks Statement State Owned Enterprises, PPP Projects, Natural Disasters December, 2020, Georgia General Overview of State Owned Enterprises Table of Contents Summary 1 SOE NEWS 1 Overview of the SOE Sector (Registry) 2 Profiles of the Major Enterprises : 5 Financing Received by the SOEs 14 Dividends Paid by SOEs 15 Lending Between SOEs 16 Non-Financial Transfers 16 Debt Management Policy of State-Owned Enterprises 16 Methodology on the Introduction of Best Practices for the Identification, Analysis and Financing Mechanisms of Quasi-Fiscal Activities 19 Forms of Quasi-Fiscal Activities: 20 Non-Commercial Service Obligations (NCSOs) 21 Current Practices 21 Impact of Quasi-Fiscal Activities on Financial Results of SOEs 21 Overview of Financial Results of SOEs 23 Impact of COVID-19 on SOEs 28 Financial Results of SOEs 29 1. JSC Partnership Fund 29 1.1. JSC Georgian State Electrosystem(GSE) 32 1.1.1. LLC EnergoTrans 34 1.2. JSC Georgian Railway 36 1.3. JSC Georgian Oil and Gas Corporation 37 2. LLC United Water Supply Company of Georgia 41 3. JSC United Energy System SakRusEnergo 43 4. LLC Gas Transportation Company of Georgia 44 5. JSC Georgian Energy Development Fund 46 6. LLC Enguri HPP 47 7. LLC Tbilisi Transport Company 49 8. LLC Georgian Post 50 9. LLC Marabda-Kartsakhi Railway 52 Sensitivity analysis of SoEs 54 Introduction 54 The Objectives of the Sensitivity analysis 54 Results of the analysis 56 SOE Reform 65 What results should be expected from the reform? 65 SOE Reform Concept 65 Current Practices of Corporate Governance in SOEs 67 Rationale For State Ownership 67 The State’s Role As An Owner 68 Stakeholder relations and responsibly business management 69 Transparency and Accountability 69 Competitive neutrality 70 Equitable treatment of shareholders and other investors 70 The responsibilities of the boards of state-owned enterprises 70 Conclusions 74 General Overview of Power Energy Sector 74 Functional Analysis of SOEs Operating in the Energy Sector 82 The impact of Sectorization 103 Assessment of the fiscal risks arising from public-private partnership projects 103 Power Purchase Agreements 103 Assessment of PPP Liabilities 111 Appendix 1 Summary In 2020, Georgia, as well as rest of the world, was severely affected by pandemic outbreak. That revealed again the need for timely identification of fiscal risks, the existence of mechanisms to minimize and / or mitigate the negative effects of risk realization. Except macroeconomic risks, state-owned enterprises and public-private partnership projects continue to be one of the main sources of fiscal risks for the country. In 2014-2018, equity injections amount of 1.3 billion GEL were made in state-owned enterprises, instead of a proportional increase in equity and assets, the equity of enterprises decreased by about GEL 0.7 billion, which was caused by large-scale losses of state-owned enterprises. In 2019, the loss of state- owned enterprises amounted 237 million GEL, while the same figure in 2018 was 816 million GEL. Despite improvements in financial performance, that is not sufficient reason for optimism. In 2017-2018, the impairment of assets in several major SOEs resulted dramatic losses for the whole SOE portfolio, which was accordingly reflected in the aggregated financial statements. As for 2019, we can say we got the real results SOEs are capable to reach (after the impairment). If we compare year 2019 aggregated results to the SOEs of other countries, we will see that Georgian SOE portfolio performance matches to the countries which have not yet implemented SOE reform. It is expected, negative sentiments will be maintained in some sectors in post-pandemic period, which will hinder growth to get back to pre-pandemic levels in short period of time. That means, we should expect further impairment losses in SOE sector, but not as high as it was in 2018. To ensure fast rehabilitation of the SOE sector, it is critically important to use crisis period for implementing reforms in corporate governance of SOEs. Some steps already have been taken to this direction. MOF has started working on development of SOE reform strategy. As for PPP projects, GOG has refrained signing new PPAs. Instead, new mechanism has been offered to investors, which supports them with so called “Green Tariff” on each generated kwh. Despite this, fiscal exposure coming from PPAs stays challenging. SOE NEWS ● Criteria were defined for the categorization of SOEs into Public Interest Entities (PIE) at the end of 2019 (Government Decree N584, issued on 29.11.2019). During the same year 47 enterprises were granted a status of PIE. It will set an additional standard of transparency for SOEs and will thereby increase a degree of their accountability; ● Process of SOE Sectorization ended in April 2020 – they got categorized into Public Corporations and General Government Sectors. Georgia is the first country in Central Asia and East Europe to carry out a comprehensive sectorisation. It transparently revealed all those enterprises that are non-commercial and permanently depend on subsidies along with other types of injections. It also identified enterprises, which are fully commercial or have a potential of transitioning into commercial enterprises. In total 52 enterprises were classified as Public Corporations, while 183 – into the General Government Sector; ● SOE Reform was launched by the Ministry of Finance of Georgia from Q2 of 2020 and work is in progress. Reform predominantly envisages the introduction of OECD principles for the corporate governance of SOEs and other best practices. Ministry of Finance of Georgia is supported in this process by partnering with international organizations. ● Georgian Energy Exchange was established with 50/50 share participation of the Georgian State Electrosystem and Commercial Operator of the Georgian Electricity System in 2019. It is predominantly aimed to conclude bilateral agreements, formation of organized prior day and following day markets, along with a preparation, organization and coordination of essential measures for shaping into a market operator; ● Acquisition of financial and non-financial assets has been restricted for JSC Partnership Fund, except for the depositing of funds. It means that Partnership Fund will no longer carry out new projects and will not increase its debt liabilities. Referred restriction will last till the reform of the Partnership Fund itself. ● Investment was made in the construction of Gardabani 2 TPP with 100% share participation of the Georgian Oil and Gas Corporation. Construction was completed in December 2019. Gardabani 2 TPP was commissioned in March 2020. It stands out with high efficiency and environmental technologies, which was built with an investment of almost 180 million USD. This project has a tremendous strategic importance for the Georgian energy system and sustainability of the entire sector, along with its successful development. ● Georgia and European Bank for Reconstruction and Development (EBRD) concluded an Agreement on July 29, 2020, which envisages the allocation of 90 million Euros for strengthening and improving the power energy network of Georgia. Within the scope of the project, new transmission network of over 150 km will be built with a respective infrastructure. Project will be implemented by the Georgian State Electrosystem and it is scheduled to be completed in summer of 2026. Overview of the SOE Sector (Registry) Fiscal Risk Document covers 92% of SOEs (by their annual turnover). Common Registry of SOEs includes information submitted by public institutions, National Office of Statistics of Georgia and other administrative sources on enterprises incorporated with share participation of the central and local authorities that are classified as significant for fiscal risk analysis. Such SOEs are considered to be the following: A) Every SOE of the central government; B) Municipal enterprises, with over 25% of state ownership and with an annual turnover exceeding 200K GEL or with annual payroll exceeding 15K GEL. Financial data obtained from various administrative sources will be used for the assessment of SOEs against the referred indicators. Financial data warehouse was created for these SOEs in 2019 on the grounds of the referred data. Considering the above referred criteria, 352 SOEs are presented for the fiscal risk analysis, out of which 179 are owned by the central government and 173 – by local authorities. Also, listed SOEs have in total 82 daughter enterprises. Analysis performed as a result of a consolidated financial data is based on the data of 352 SOEs, while the data of 82 daughter companies are presented as an additional information. Table 1 Total number of SOEs 352 from which: Local Government 173 Central Government 179 Ministry of Economy and Sustainable Development of Georgia 129 Partnership Fund 31 Ministry of Environmental Protection and Agriculture of Georgia 5 Legal entities 5 Ministry of Defence of Georgia 3 Ministry of Regional Development and Infrastructure 2 Ministry of Justice 1 Ministry of Education, Science, Culture and Sport 2 Investment Fund founded by the Government of Georgia 1 61 of the state-owned enterprises that are in the ownership of municipalities are owned by the municipalities of Tbilisi and Batumi, and their share is 94 percent of the total turnover of the enterprises owned by the municipalities. Table 2 Data on state-owned municipal enterprises by municipalities Share of Share of municipal Share in Share in 2019 Total municipal government total