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Fin650: Project Appraisal Lecture 9 Comparison of Financial and Economic Appraisal 1 Analyzing Economic Costs and Benefits in an Existing Market (a) Total Economic Benefit (b) Total Economic Cost Price in Rand/Unit Price in Rand/Unit Consumer surplus P Producer surplus Pmax Pmax Supply m C Pm Demand 0 Qm E 0 Units of Output (c) Total Economic Benefits and Costs Price in Rand/Unit Pmax Pm Supply C Demand E 0 C Qm Units of Output Qm Units of Output Analyzing Economic Costs and Benefits in an Existing Market The gross economic benefits from the consumption of the output from this industry are greater than the financial revenues received by the suppliers due to the consumer surplus enjoyed by the consumers of the output. Economic cost of producing the output is less than the financial revenues received by the suppliers due to the producer surplus enjoyed by the suppliers. The implication of these two facts is that the financial price of a unit may be different from its economic price even in the absence of distortions. Analyzing the Economic Benefits of an Output Produced by a Project Economic Benefits of a New Project in an Undistorted Market: Upward sloping supply (a large project) 4 Analyzing the Economic Benefit of an Output (subject to tax) Supplied by a Large Project 5 Analyzing the Economic Cost of an Input Demanded by a Project (Cont’d) If the quantity demanded by the project is relatively small compared to the size of the market then there will only be a very small change in the market price. In such a situation and given that we are operating in an undistorted market, the gross financial cost to the project will be equal to the gross economic cost. A difference only arises when the change in the quantity demanded by the project is sufficiently large to have a large impact on the prevailing market price. 6 Analyzing the Economic Cost of an Input Demanded by a Project (Cont’d) If the quantity demanded by the project is large compared to the size of the market then there will only be a change in the market price. Government purchasing land Purchase price, P2*(q-q1) Economic costs P1 P2 * (q q ' ) 2 Land taken through eminent domain Economic costs Pres P2 2 * (q q ' ) 7 Analyzing the Economic Cost of an Input Demanded by a Project Economic Cost of an Input Demanded by a Project in an Undistorted Market: Inelastic supply 8 Analyzing the Economic Cost of an Input Demanded by a Project Economic Cost of an Input Demanded by a Project in an Undistorted Market:Upward sloping supply curve and a large Project 9 Analyzing the Economic Cost of an Input (subject to tax) Demanded by a Project Large project subject to purely revenue generating input tax General principles: When a project reduces the quantity of input available for other people, use the willingness to pay (as indicated by the demand curve) as value When a project increases the quantity of input that the market must produce, use marginal cost for the value of the added input Tax is treated as transfer 10 Analyzing the Economic Cost of an Input (subject to tax) Demanded by a Project 11 Class Exercise A project uses large quantity of cements to build a bridge. Cements are subject to a Tk. 1/bag tax and 100 million bags will be used to build the bridge. As a result of the bridge, the price of cement including the tax, will rise to from Tk. 2 to Tk. 2.30 per bag and private consumers are expected to decrease their consumption by 20 million bags. What costs should be attached to this input? 12 Analyzing the Economic Cost of an Input (subject to taxes related to externalities) Demanded by a Project 13 Economic Evaluation of Non-Tradable Goods and Services in Distorted Markets Distortions are defined as market imperfections. The most common types of these distortions are in the form of government taxes and subsidies. Others include quantitative restrictions, price controls, and monopolies. We need to take the type and level of distortions as given and not changed by the project when estimating the economic costs and benefits of projects. The task of the project analyst or economist is to select the projects that increase the net wealth of country, given the current and expected regime of distortions in the country. 14 Valuation of Benefits in Distorted Markets If market or government failures distort the relevant product market, then project benefits are measured by the changes in social surplus resulting from the project plus net revenues generated by the project Monopoly As in the competitive case, the social surplus generated by the output produced and sold in the monopolist is represented graphically by the area between the demand schedule and the marginal cost curve that is to the left of the MR and MC curves Social surplus above the price is received by the consumers and that below the price is captured by the producer Monopolist is a part of the society; therefore benefits accruing to them count. Breaking the monopoly will increase social surplus Deadweight loss would disappear Consumers will capture a part of the monopolists producers surplus, viewed as transfer 15 Valuation of Benefits in Distorted Markets 16 Valuation of benefits in Distorted Markets Natural Monopoly Four policies Allow monopoly, deadweight loss abc, monopoly profits=Pmafg Regulate monopoly, set PR = AC, eliminates monopoly profits, transferring social surplus to persons using the road, expands output, reduces deadweight loss from area abc to area dec, society’s benefit adeb Require road authority to set Pc , eliminates deadweight loss, price is less than AC, revenue no longer cover costs, subsidy would be required Free access, marginal costs exceed willingness to pay, deadweight loss chQo, no toll revenue, entire construction and operation costs have to be subsidized 17 Valuing Impacts from Observed Behavior In project analysis we estimate change in social surplus to value impact of the programme/project Need to know the shapes of the supply and demand curves There are well functioning competitive markets, know only one point on the demand and supply curves, represented by the equilibrium Goods that are rarely traded in markets-health and safety, pollutions, access to scenic areas Commodities that are traded in imperfect markets, monopoly, externalities asymmetric information, and 18 Demonstrations Estimating benefits and cost based on demonstration or pilot programs Alternative evaluation designs Limited applications Employment and training programs, people oriented service A new dam, on a small scale, pilot basis cannot be done Advantages Classical experimental design with or without baseline data Simple before and after comparison Non-experimental comparison with or without baseline data A bad idea can be abandoned Needed adjustment in the program may be made Disadvantages May not readily translate into a large-scale program Uncertainty concerning external validity 19 Direct Estimation of Demand Curves Three possibilities Knowing one point on the demand curve and its slope or elasticity Extrapolating from a few points, know a few points on the demand curve that can be used to predict another point of relevance to policy evaluation Econometric estimation with many observations, have a sufficient number different observations of prices and quantities 20 Class Exercise Current refuse disposal is 2.6lbs per person per day and disposed off in containers of 20lbs Currently there is no charge on refuse collection Marginal social cost (collection + landfill costs) = 0.6/lb In new Delhi for each Rupee increase in price of refuse collection reduces wastes by 0.4 lb/p/d Assume a linear demand curve Evaluate impact of imposition of a fee of 0.05/lb, i.e. Tk. 1 for each container of 20lbs, MPC is less than MSC Using a Slope Estimate Linear demand curve q 0 1 p Slope or elasticity estimates from previous research Assuming α0 = 2.60, α1= - 0.4 Estimating social surplus gain from charging for refuse disposal A graphical illustration 22 Social Surplus Gain from Refuse Fee 23 Using an Elasticity Estimate We have an estimate of price elasticity of demand from previous research εd = α1 p/q α1 = εd q/p εd=-0.12 p = 0.81, and q = 2.62, α1 = -0.40 Construction of a linear demand curve to measure changes in social surplus requires either a direct estimate of the slope itself or an estimate of the price elasticity of demand and the price and quantity at which the elasticity was estimated 24 Extrapolation and Econometric Estimation Effect of a fare increase on bus ridership If the past fare increase of Tk. 1 resulted in 1000 fewer riders , then it may be reasonable to assume that a further increase of Tk 1 will have the same effect Assumed functional relationship between the outcome and the policy variable Linear functional forms can produce very different predictions than constant-elasticity functional forms Further we extrapolate from past experience, the more sensitive are our predictions to assumptions about functional form Econometric estimation with many observations If many observations of quantities demanded at different prices are available, then it may be possible to use econometric techniques to estimate demand schedule 25 Imputing a Demand Curve from Two Points 26 Market analogy method Government supply many goods that are also provided by the private sector, e.g. education Using price and quantity of an analogous private sector good to estimate the demand curve for a publicly provided good The market price of a comparable good in the private sector is an appropriate shadow price for a publicly provided good, if it equals the average amount that users of the publicly provided good will be willing to pay Private and public goods must be comparable in quality of service and other important characteristics Limitations: Using private sector revenues would underestimate benefits, because it omits consumer surplus 27 Market analogy method Using the market analogy method to value time saved Bridge, highway improvement saves time Wage rate Limitations of wage rate Benefits, should be added to wages People work during travel Truck drivers work, to be counted, wage+benefit Taxes, After tax wage rate plus benefit Pleasure travel Dirty, dangerous jobs, unemployed 28 Class Exercise I Using Airbags in car would increase probability of survival in a accident from p to p+w. Additional cost of an airbag is Tk.1,000 W=1/1000 Calculate value of life. Class Exercise II One type of construction job has a 1/1000 greater chance of a fatal injury in a year than another type of construction job. Suppose riskier job pays a salary that is Tk. 2000 higher than the safer job Calculate value of life. Market analogy method Using the market analogy method to value life saved Foregone earnings method Value of life saved equals the present value of future earnings Consumer purchase studies (p+w)V(Life) –Tk. 1000 = pV(life) (p+w)V(Life) - pV(life) = Tk. 1000 wV(life) = Tk. 1000 V(life) = Tk. 1000 /w, w =1/10,000 V(life) = Tk. 1000 /(1/10,000) = Tk. 10,000,000 Labour market studies (1/1000) V(life) = Tk. 2000 V(life) = Tk. 2 million 31 Shadow Prices When a market does not exist or market failure leads to a divergence between market price and marginal social cost, analysts try to obtain estimates of what market price would be if the relevant good were traded in a perfect market. Such an estimate is called a shadow price Estimates of shadow prices when markets are missing Examples: value of a unit of time, statistical life, or the (negative) value of a particular type of crime Shadow Prices Shadow Prices Shadow Prices Plug-Ins for Value of Travel Time Saved Shadow Prices Plug-Ins for Value of Recreational Activities (in 1999 U.S. dollars) Shadow Prices Plug-Ins for Value of Environmental Impact (in 1999 U.S. dollars) Project Analysis in Developing Countries Project Analysis in developing countries have much in common with Project Analysis in industrialized countries The main distinguishing characteristic of Project Analysis in developing countries is the much grater emphasis on adjusting the market prices of project output and inputs so that they more accurately reflect their value to society Markets are more distorted in developing countries Segmented labor market Overvalued exchange rate Tariffs, taxes, and import controls Formal and informal credit markets Use shadow prices/accounting prices instead of market prices LMST Accounting Price Method Developed by UNIDO, I.M.D Little and J.A. Mirrlees, synthesized by Lynn Squire and Herman G. van der Tak The LMST methodology Use world prices as shadow price for all project inputs and outputs that are classified as tradable World prices are less distorted than domestic prices Imported input valued at import price, CIF Exported output valued at export price, FOB Examples Steel plant Agricultural crop LMST Method in Practice Shadow pricing involves multiplying each market price by an accounting price ratio APR for good i = accounting/shadow price of good i /market price of good i Shadow price of good i = APR of good i *market price of good i Small country assumption Shadow price output that is Shadow price Shadow price (electricity) of an imported input or an an import substitute of an export of a non-tradable good Accounting Price of an Import CIF price * Exchange rate = World Price in domestic currency Accounting prices Use shadow exchange rate, if there is a big difference between official and market exchange rates CIF price: APR = 1 Tariff : APR = 0 Transport cost: APR = 0.5 Distribution cost: APR = 0.8 Weighted APR: 0.85 Shadow price= Market Price*APR Accounting Price of an Imported Good Item Dollar Price Market APR Price(Tk) Accounting Price CIF Price 40 2800 1.00 2800 Tariff - 350 0.00 - Transport - 280 0.50 140 Distribution - 175 0.80 140 3605 0.85 3080 Total Accounting Price of an Export FOB Price Export tax is a transfer between foreign purchaser (no standing) and the government: APR= 1 Transport for export: APR= 0.5 Factory gate price: APR=1 Shadow price = 5180*1+70*0.5+1750*1 =Tk. 6965 Accounting Price for Export Item FOB Price Dollar Price 100 Export tax 25 1750 1.0 1750 1 70 0.5 35 74 5180 1.0 5180 Transport Factory Gate Market APR Accounting Price(Tk) Price 7000 - Transport(d) - 120 0.5 60 Distribution(d) - 300 0.8 240 Accounting Price of Non-tradable LMST involves determining the equivalent value of non-tradables in world prices Breaking down the cost of inputs into traded, non-traded and labor components Multiply market price by applicable accounting price ratio CIF prices: APR =1 Domestic transfer (tariffs and taxes): APR = 0 Labor: APR = 0.6 Standard conversion factor: 0.80 Accounting Price for Electricity Valued or Marginal Cost of Supply (in thousands of pesos) Conversion factors Semi-input-output analysis Consumption conversion factors Weighted average of accounting price ratios for a nationally representative market basket of goods Standard conversion factors SCF = (M+X)/[(M+ Tm –Sm)+(X-Tx+Sx)] Where M= Total value of imports(CIF) X = Total value of exports(FOB) Tm = Total tariff on imports Tx = Total taxes on exports Sm = Total subsidies on imports Sx = Total subsidies on exports Average value of SCF for different countries 0.8 (ranges between 0.59-0.96) Shadow Pricing when Goods are in Fixed Supply Constant marginal costs up to capacity level, up to Q1 and then completely inelastic Whether the fixed supply is binding or not If not binding (demand with the project within the elastic range), no change in market price. Would not affect the current consumers of electricity Would require additional input to produce additional electricity, use shadow cost method for non-tradables If binding, (demand with the project is in the inelastic range), market price will increase. Current consumers lose surplus and producers gain surplus Measured in market prices, the cost of electricity would equal [(P1+P2)/2](Q1-Q2) To convert into shadow price equivalent, multiply the cost by the consumption conversion factor( weighted average of accounting price ratios for a nationally representative market basket of goods). Shadow Pricing when Electricity is Completely Elastic and Inelastic The Shadow Price of Labor Location of the project Source of labor Accounting price ratio of type j labor = Shadow price of type j labor/ the market wage for type j labor Shadow price of foreign workers SWf = [h + (1-h)(CCF)](PW) Where PW is the project wage, h is the fraction of PW sent or taken home, and 1-h is the fraction spent domestically Rural market wage RMW = 0.5(Tk.50) + 0.25(Tk.10) + 0.25(Tk.15) = Tk. 31.25 Intermediate Good and Asset Valuation Method Intermediate good method If the output from a project is to be used as an input into the production of some other good, then the effects on profits of the other, downstream industry can be included as a benefit, e.g. irrigation, education and training, value added Excludes consumer surplus Double counting, demand curve for water, benefits to farmer Asset valuation method Increase or decrease in the property value following implementation of a project, e.g. location of jail, park Ex post CBA Assumes other factors remaining the same Not applicable in case of mobile assets 51 Travel Cost Method Used in valuing recreational sites Steps in travel cost method Visitors from different origins bear different travel costs depending on their proximity to the site The resulting differences in total cost, and the differences in the rates of visit that they induce provide a basis for estimating demand curve for the site Select a random sample of households within the market area of the site Survey the households to determine their number of visits to the site over some period of time, all of their costs involved in visiting the site, the cost of visiting substitute sites, their incomes, and their other characteristics Specify a functional form for the demand schedule and estimate it using the survey data 52 Illustration of the Travel Cost Method Zone Travel Time (hours) A 0.5 B Actual total cost per person (Tk.) Average number of Visits per Person Consumers Surplus per Person Consumers Surplus per Zone (Tk. thousands) Trips per Zone (thousands) 2 20 15 525 5,250 150 1.0 30 30 13 390 3,900 130 C 2.0 90 65 6 75 1,500 120 D 3.0 140 80 3 15 150 30 E 3.5 150 90 1 0 0 10 10,800 440 Total Travel Distance (km) 53 Travel Cost Method 54 The Social Discount Rate: Main Issues How much current consumption society is willing to give up now in order to obtain a given increase in future Consumption? It is generally accepted that society’s choices, including the choice of weights be based on individuals’ choices Three unresolved issues Whether market interest rates can be used to represent how individuals weigh future consumption relative to present consumption? Whether to include unborn future generation in addition to individuals alive today? Whether society attaches the same value to a unit of investment as to a unit of consumption Different assumptions will lead to choice of different discount rate 55 Does the Choice of Discount Rate Matter? Generally a low discount rate favors projects with highest total benefits, irrespective of when they occur, e.g. project C Increasing the discount rate applies smaller weights to benefits or (costs) that occur further in the future and, therefore, weakens the case for projects with benefit that are back-end loaded (such as project C), strengthens the case for projects with benefit that are front-end loaded (such as project B) 56 NPV for Three Alternative Projects Year Project A Project B Project C 0 -80,000 -80,000 -80,000 1 25,000 80,000 0 2 25,000 10,000 0 3 25,000 10,000 0 4 25,000 10,000 0 5 25,000 10,000 140,000 Total benefits 45,000 40,000 60,000 NPV (i=2%) 37,838 35,762 46,802 NPV (i=10%) 14,770 21,544 6,929 57 Appropriate Social Discount Rate in Perfect Markets • • • • As individuals, we prefer to consume immediate benefits to ones occurring in the future (marginal rate of time preference) We also face an opportunity cost of forgone interest when we spend money today rather than invest them for future use (marginal rate of return on private investment) In a perfectly competitive market: rate of return on private investment = the market interest rates = marginal rate of time preference (MRTP) The rate at which an individual makes marginal trade-offs is called an individuals MRTP Therefore, we may use the market interest rate as the social discount rate 58 Equality of MRTP and Market Interest Rate 59 Alternative Social Discount Rate in Imperfect Markets Six potential discounting methods Social discount rate equal to marginal rate of return on private investment, rz Social discount rate equal to marginal rate of time preference, pz Social discount rate equal to weighted average of pz, rz and i , where i is the government’s real long-term borrowing rate Social discount rate is the shadow price of capital A discount rate that declines over the time horizon of the project A discount rate SG, based on the growth in real per capita consumption 60 Alternative Social Discount Rate in Imperfect Markets Using the Marginal Rate of Return on Private Investment The government takes resources out of the private sector Society must receive a higher rate of return compared to the return in the private sector Criticism Too high Return on private sector investment incorporates a risk premium Government project might be financed by taxes, displaces consumption rather than investment Project may be financed by low cost foreign loans Private sector return may be high because of monopoly or negative externalities Government investment sometimes raises the private return on capital 61 Alternative Social Discount Rate in Imperfect Markets Using the Marginal Social Rate of Time Preference, pz Numerical values of pz Real after-tax return on savings, around 2 percent for the US economy Criticisms Individuals have different MRTP How to aggregate such individual MRTP Market interest rate reflects MRTP of individuals currently alive Using the Weighted Social Opportunity Cost of Capital WSOC= arz + bi + (1-a-b)pz Numerical Value, 3 percent for the US economy 62 Harberger’s Social Discount Rate Social discount rate should be obtained by weighting rz and pz by the relative size of the relative contributions that investment and consumption would make toward funding the project s = arz + (1-a)pz, where a = ΔI/(ΔI+ ΔC) and (1-a) = ΔC/(ΔI+ ΔC) Savings are not very responsive to changes in the interest rate, ΔC is close to zero The value of the parameter a is close to one marginal rate of return on private investment rz is a good approximation of true social discount rate The 63 Alternative Social Discount Rate in Imperfect Markets Criticisms Use of WSOC Criticisms applicable to use of rz and pz applies Different discount rates for different projects based on source of financing the Shadow Price of Capital Strong theoretical appeal Discounting be done in four steps Costs and benefits in each period are divided into those that directly affect consumption and those affect investment Flows into and out of investment are multiplied by the shadow price of capital θ, to convert them into consumption equivalents Changes in consumption are added to changes in consumption equivalents Discounting the resultant flow by pz 64 Alternative Social Discount Rate in Imperfect Markets Shadow Price of Capital (rz )(1 f ) p z rz f (1 f ) Where rz is the net return on capital after depreciation, δ is the depreciation rate of capital, f is the fraction of gross return that is reinvested, and pz is the marginal social rate of time preference Numerical Values for the θ,SPC, 1.5-2.5 for the US economy Applying SPC in Practice Criticism of calculation and use of the SPC 65 Alternative Social Discount Rate in Imperfect Markets Using Time-Declining Discount Rates Conclusion, Social Discounting in Imperfect Markets If all costs and benefits are measured as increments to consumption, use MSRTP, pz, Boardman et. Al. suggests a value of 2 percent, sensitivity 0-4 percent If all costs and benefits are measured as increments to private sector investment, use MRROI, rz, Boardman et. Al. suggests a value of 8 percent, sensitivity 6-10 percent If all costs and benefits are measured as increments to both consumption and private sector investment, use SPOC, θ, to increments in investment and then discount at MSRTP, Boardman et. Al. suggests for SPOC, a value of 1.65 percent, sensitivity 1.3-2.7 percent; and ΔI = 15 percent and, ΔC= 85 percent, in the absence of information 66 The Social Discount Rate in Practice Many Government Agencies do not discount at all Shadow Price of Capital is rarely used Governments do not use time-varying discount rates Constant positive rate that varies from country to country US, 7-10 percent Canada, 10 percent, sensitivity 5-15 percent 0-3 percent for Health and Environment Projects ADB, EIRR of 10-12 percent 67 Valuing Human Lives In many projects, one of the benefit generated is some reduction in the number of people who die due to some cause Why put a value on human life? Consider a project that will reduce death due to a certain cause by 3 per year while costing Tk. 5 million, should the project be undertaken? Project A will have PVNB of Tk. 5 million while saving no lives and project B will have PVNB of Tk. 2 million while saving one life, which project is preferable? Distinction between known life and statistical life Known life, a hostage being held, a child stuck in a well, this is a known life, and the value attached to this known life is usually very, very high Statistical life, is the result of a change in the level of risk faced by a population multiplied by the size of the population, e.g. a project that reduces the chance of accidental death by one in one million for a population of one million people will save one statistical life 68 Valuing Known Lives Valuing known lives: human capital approach Gross value method: Look at the present value of someone’s lifetime earnings. Sum over the probability of survival multiplied by the present value of earning in each period Net value method: Look at the present value of expected income less expected consumption. Sum over the probability of survival multiplied by the present value of earning less consumption in each period, probably negative for retirees and may be for children, leading to some disturbing policy implications 69 Valuing Known Lives Assumes life has value only because of productive capacity, zero value to own happiness and well being Individual does not have a standing, everyone else has More frequently used in valuing known life instead of a statistical life Used by courts, identity of the dead person is known In case of most projects, it is not known whom the project will save or, more interestingly, whom the project may kill Valuing known lives is not subject of a CBA, e.g. suicide mission 70 Valuing Statistical Lives With most projects, the benefits or costs in terms of lives saved or lost is really an expected value resulting from a change in the level of risk faced by a fairly large number of people ΔR is the change in risk of death If there are N people in the group, then the expected number of lives saved is N* ΔR Valuation attached to ΔR Russian Roulette What would one be willing to pay to reduce the number of bullets? To avoid playing at all? To have more chambers filled with bullets? Value of statistical life (VSL) Two identical jobs except that one has an increased probability of death in each year of 0.0001. If the difference in annual salary at the two jobs is Tk. 500, then the VSL, based on these two jobs would be Tk. 500/0.0001 = Tk. 5,000,000 Is the VSL of Rich higher than that of Poor? VSL of people in rich countries higher than those of poor countries? Income elasticity of VSL is in the range of 0.50 to 0.60, i.e. a 10% increase in income results in a 5-6% increase in VSL 71