Assessment Of Power Sector Reforms In Georgia

Reforms pursued by Georgia in recent years have made its power sector commercially viable as well as more efficient and reliable. Now unbundled and largely privatized, the former state monopoly has developed an operational wholesale market and has made great progress in making its operations and system pricing more efficient. However, it still lacks independent regulatory competence and pricing transparency, and it remains vulnerable to external supply shocks, having to balance shortfalls in domestic hydropower generation with fuel imports for its power stations and with gas imports for its thermal plants. This country report assesses the reform efforts and experiences of Georgia’s power sector for lessons and insights that other economies could find useful in their own power sector planning and policy and strategy formulation.

This report examines three economies in different parts of Asia---Georgia, Sri Lanka, and Viet Nam---that introduced power sector reforms in recent years to create a commercially viable and efficient power sector. Each took a different route in moving away from a monopoly state-owned utility toward the common goal of a competitive, market-based, and better-regulated power sector. This report documents the broad spectrum of their power sector reform efforts, experiences, and relative successes as well as shortfalls, then uses international standard indicators to assess their economic, social, and environmental outcomes. Other economies should be able to draw valuable lessons and insights from this report for their own power-sector planning and policy and strategy formulation.

Around the world, network utilities (i.e., electricity, natural gas, railway, telecommunications, and water supply industries) are undergoing major structural transformation. A new wave of market liberalization, together with rapid technological changes, has challenged the previously dominant monopoly organization of these industries. A global trend toward deregulation and restructuring is evident in countries at different levels of social and economic development. The challenges of transition from a monopolistic to an open market competitive structure are numerous. Understanding these problems and finding solutions are essential to successful restructuring. In developing countries and economies in transition (i.e., the Eastern Europe and the former Soviet Union), government-owned utilities are often considered to be highly inefficient. The dominant power sector restructuring strategies seek to promote economic efficiency through a gradual introduction of competition into the power sector. Five components of power sector reform are commonly proposed by the World Bank and others for these countries: commercialization, privatization, establishment of an independent regulatory agency, unbundling and gradual introduction of competition in generation and retail markets. The Republic of Georgia, like many economies in transition (e.g., Hungary, Ukraine, and Kazakhstan) has followed this reform model. However, outcomes of the reform have not been as promised. The acute economic problems facing Georgia after it regained independence have compounded problems in the power sector. A review of Georgia's utility reforms reveals that the country has undertaken electricity industry restructuring without giving substantial consideration to the problems that these reforms might have created within the industry or society. The main task of this dissertation is to find the restructuring model, which can best serve economic, social and environmental goals under circumstances similar to those in economies of transition. The dissertation provides a guide for policy makers in the energy sector for implementing power sector reform. At first the dissertation offers a general overview of different models of power sector organization, regulatory frameworks and market arrangements, and the potential impact of reform on social welfare. This knowledge is then applied for analysis of power sector reform in the Republic of Georgia. Social welfare analysis (SWA) is a major analytical tool used in the research for assessing the potential impacts of different power sector organization models on various stakeholders. Through the research it was identified that power industry arrangements in different countries have their particularities; however, after some level of simplification, power sector organization models can fit into one of three broad categories: (1) Government control and regulation of generation and retail segments of the power industry. (2) Full scale competition in the generation segment and retail choice. (3) Partial government control of the generation segment and limited retail choice. For SWA of different power market arrangement scenarios, electricity supply and demand curves had to be derived; for this purpose electricity demand forecasting and power supply evaluation methodologies were developed. This dissertation combines SWA, accepted demand forecasting methods and established power supply evaluation techniques to assess power sector performance under specified policy scenarios relevant to the circumstances of economies in transition such as the Republic of Georgia. Detailed analyses are performed for understanding possible outcomes with the introduction of different reform models. In addition, specific options for incorporating sustainable energy alternatives in the energy planning process are identified and assessed in economic, environmental and social terms. Special attention is given to market-based instruments for promoting sustainable energy options (e.g., renewable portfolio standards, energy conservation and energy efficiency programs) and social policies (e.g., lifeline rates, local employment). Results obtained from the detailed analysis of policy options for Georgia guide recommendations for a reform of the power sector.

Empirical insights on household behavior and electricity consumption patterns in this book reveal that, in Europe and Central Asia, the erosion of tariff based subsidies has disproportionately affected the poor, while direct transfers through social benefit systems have often been inadequately targeted. The book suggests alternative strategies for achieving cost-recovery in the electricity sector in a socially and politically acceptable manner, providing lessons that are equally relevant for other utilities and regions.

This study examines the fiscal, efficiency, social, and environmental impact of power sector reforms in seven countries in Europe and central Asia (covering Armenia, Azerbaijan, Georgia, Hungary, Kazakhstan, Moldova and Poland). It includes a CD-ROM containing a pdf of this publication in Russian, plus pdfs of English and Russian versions of the following related titles: i) Utility pricing and the poor: lessons from Armenia; ii) Coping with the cold: heating strategies for eastern Europe and central Asia's urban poor; and iii) Revisiting reform in the energy sector: lessons from Georgia.

During the 1990s, a new paradigm for power sector reform was put forward emphasizing the restructuring of utilities, the creation of regulators, the participation of the private sector, and the establishment of competitive power markets. Twenty-five years later, only a handful of developing countries have fully implemented these Washington Consensus policies. Across the developing world, reforms were adopted rather selectively, resulting in a hybrid model, in which elements of market orientation coexist with continued state dominance of the sector. This book aims to revisit and refresh thinking on power sector reform approaches for developing countries. The approach relies heavily on evidence from the past, drawing both on broad global trends and deep case material from 15 developing countries. It is also forward looking, considering the implications of new social and environmental policy goals, as well as the emerging technological disruptions. A nuanced picture emerges. Although regulation has been widely adopted, practice often falls well short of theory, and cost recovery remains an elusive goal. The private sector has financed a substantial expansion of generation capacity; yet, its contribution to power distribution has been much more limited, with efficiency levels that can sometimes be matched by well-governed public utilities. Restructuring and liberalization have been beneficial in a handful of larger middle-income nations but have proved too complex for most countries to implement. Based on these findings, the report points to three major policy implications. First, reform efforts need to be shaped by the political and economic context of the country. The 1990s reform model was most successful in countries that had reached certain minimum conditions of power sector development and offered a supportive political environment. Second, countries found alternative institutional pathways to achieving good power sector outcomes, making a case for greater pluralism. Among the top performers, some pursued the full set of market-oriented reforms, while others retained a more important role for the state. Third, reform efforts should be driven and tailored to desired policy outcomes and less preoccupied with following a predetermined process, particularly since the twenty-first-century century agenda has added decarbonization and universal access to power sector outcomes. The Washington Consensus reforms, while supportive of the twenty-first-century century agenda, will not be able to deliver on them alone and will require complementary policy measures

Sri Lanka's power sector reforms were undertaken as part of a larger overall economic recovery effort and much-needed reconstruction program following a 30-year civil war. The power sector's restructuring, primarily geared toward encouraging more competition and improved regulation, has brought about wider access to the grid, lower transmission and distribution losses, and a more efficient generation system; but it was met with limited success in unbundling the power system and in making electricity tariffs cost-based and more efficient. This country report by the Asian Development Bank assesses Sri Lanka's experience in reforming its power sector for lessons and insights that other economies could find useful when pursuing their own power sector planning and policy and strategy formulation.

This report discusses key issues surrounding finance mobilisation for achieving Georgia’s climate change and green growth targets, and new investment opportunities for developing its capital market. The report focuses particularly on finance for climate change mitigation from various sources – ...