utilities regulation
in Europe
Contents
Executive summary
01
Patchwork of different regulatory models across Europe
02
Oa\]%jYf_af_\]falagfg^[geegf]d]e]flk
)*
03
Widespread downward trend in rate of return
16
04
J]_mdYlgjk^g[mkgfZ]ll]j]^[a]f[qYf\imYdalq
)0
Conclusion
24
EY contacts
25
26
Belgium
27
;r][`J]hmZda[
*0
>afdYf\
*0
France
29
Germany
30
Greece
31
Italy
32
The Netherlands
33
Poland
33
Romania
34
Slovakia
35
Spain
36
Sweden
37
Koalr]jdYf\
+0
Lmjc]q
+0
39
Introduction
Power and gas regulation
in Europe is highly
complex. No two countries
are regulated in quite the
same way although all
regulators are getting
more demanding. In our
daily work with power
and utility clients, we
see what a struggle it
can be to understand the
whole picture.
Louis-Mathieu Perrin
Assurance Power & Utilities Sector Resident, EY
+33 1 46 93 46 14
louis-mathieu.perrin@fr.ey.com
)&:]d_ame$;r][`J]hmZda[$>afdYf\$>jYf[]$?]jeYfq$?j]][]$
Italy, the Netherlands, Poland, Romania, Slovakia, Spain,
Ko]\]f$Koalr]jdYf\$Lmjc]q$l`]Mfal]\Caf_\ge&
Executive
summary
While these moves reinforce
communication between national power
and gas regulators, were unlikely to
see Europe operating under a single
regulatory system in the short term. A
variety of models will continue to coexist
for the foreseeable future (see page 6).
Understanding Europes power and
gas regulation rules will continue to be
complex and extremely challenging.
It isnt just the overall approach that varies
Zq[gmfljq2l`]\]falagfg^o`Ylo]
might assume to be common parameters
the cost of equity and debt gearing, for
example can also be distinctly different
depending on your location. Even when
regulators are using the same kind of input
categories, the level of input itself can vary
widely, and in ways we might not expect
(see page 12).
There are some common trends, including
a widespread downward pressure on rates
of return (see page 16). This is partly
because apart from a few countries
affected by the debt crisis the cost of
debt has generally come down. Some
national regulators also clearly believe
regulated returns should be reduced
01
Patchwork of different
regulatory models
across Europe
J]_mdYlgjqYkk]lZYk]2ima[cj]eaf\]j
Straight cost-plus regulation used to be widespread in Europe.
Regulators paid power and gas companies based on their
costs, plus a return to compensate for their activity. But today
only a very limited number of countries allow distribution and
transmission system operators to automatically pass through
costs in their tariffs.
Finland
Cost plus
Sweden
Belgium
Incentive-based
Germany
;r][`J]hmZda[
France
?]jeYfq
The Netherlands
Combination of models
Finland
?j]][]
Italy
Spain
Koalr]jdYf\
L`]MC
Netherlands
UK
Poland
Belgium
Czech Republic
Slovakia
France
Romania
Revenue/price/income cap
Poland
Romania
Slovakia
Sweden
Turkey
Spain
Source: EY analysis
Switzerland
Italy
Greece
Turkey
3. Sometimes also referred to as regulatory asset value (RAV). Please note that RAB is a generic
\]falagfYf\l`]j]^gj]\g]kfglYhh]Yjaf>a_mj])&Af^Y[l$J9:[YfZ]mk]\YkYj]^]j]f[]gj
Zmad\af_Zdg[cafYfqg^l`]^gmjj]_mdYlgjqlqh]ko]a\]fla]\&
Depreciation
9ml`gjar]\gh]p4
Asset remuneration
9ml`gjar]\gh]pakmkmYddq
\]f]\Zql`]j]_mdYlgjYkl`]
[gklkljm[lmj]g^Yf]^[a]fl
system operator, enabling
]^[a]fleYfY_]e]flg^l`]
asset base. It is not a strict
reference to any actual cost
structure, as would be the case
in a pure cost-plus regulatory
model.
Planned volumes
(MWh, MW, )
Network fees
of DSO
*Revenue from reactive power and contractual capacity excess and additional services is excluded from the regulated revenue used for
network fees calculation
Bmkla]\
operating costs
Operational costs established with
the model assessing the effectiveness
of operational costs of Polish DSO for
]n]jqn]%q]Yjh]jag\&
Electricity costs to cover network
dgkk]kZYk]\gfbmkla]\ngdme]Yf\
price set by ERO.
Network property tax based on
amount to be incurred.
Depreciation
It is based on historical
depreciation assigned to the
distribution activities arising
from the books of account.
The depreciation of planned
investments is calculated based
on a regulatory depreciation
rate of 4%.
Source: EY analysis
4. Operating expenditure.
Return on RAB
RAB
WACC
J9:oYknYdm]\Ykgf+)<][]eZ]j*((0
and is rolled-forward for the purpose of
the given years tariff.
L`]=f]j_qJ]_mdYlgjqG^[] =JG$l`]
Polish regulator) has published WACC
[Yd[mdYlagfk^gjl`]n]%q]Yjh]jag\
(201115).
Transmission services
Cost of purchase of
transmission services
from transmission system
operator (TSO).
Included in DSO tariff as a
pass-through cost.
Af]^[a]fl[gklk\]k[jaZ]kYkalmYlagfo`]j]Y[gehYfqak
providing a more expensive service than its peers, in terms
g^[gklkl`Ylal[Yf[gfljgdgjafm]f[]&Af]^[a]fl[gklk
are determined at an individual company level, based on a
benchmarking exercise with other operators that have similar
[`YjY[l]jakla[k&L`]j]_mdYlgj`Ykk]l?]jeYfgh]jYlgjkYlYj_]l
lg^mddq]daeafYl]af]^[a]fl[gklkYll`]]f\g^l`]k][gf\
j]_mdYlgjqh]jag\ *(),lg*()0!&
=^[a]fl[gklkYj]Ydkg\]l]jeaf]\ZYk]\gfYZ]f[`eYjcaf_
]p]j[ak]&L`]qYj]\]f]\Ykl`]afm]f[]YZd][gklkg^l`]
benchmark company in a reference year. They are subject to a
cost reduction target.
Fgf%afm]f[]YZd][gklkkm[`Yk]ehdgq]]Z]f]l[gklk
and transport grid fees for distribution companies are fully
reimbursed by the regulator. They are not subject to any incentive
mechanism.
To take new investments into account, annual allowed revenue is
adjusted through an expansion factor. This factor depends partly
on the number of new connections to the grid for distribution
gh]jYlgjk o`a[`ak_an]fY-(o]a_`laf_!Yf\hYjldqgfl`]kar]
of the service area (also 50% weighted).
By separating three types of cost, the regulator aims to encourage
cost reduction both at individual company level and across the
whole group governed by the common regulatory regime.
Where:
Rt = Allowed revenue in the year t
Cni,t5;gklkl`Yl[YffglZ]afm]f[]\$]&_&$]ehdgq]]Z]f]l[gklkYf\_ja\^]]k^gj`a_`]jngdlY_]d]n]dk ]&_&$ljYfkhgjl_ja\^]]k!$
applicable for year t
CiB,05Afm]f[]YZd][gklkg^l`]Z]f[`eYjc[gehYfqafl`]j]^]j]f[]q]Yj
Vt5H]j[]flY_]g^af]^[a]f[ql`Yl`YklgZ]j]\m[]\Zql`]]f\g^q]Yjl
Ci5;gklkl`YlYj][Ymk]\Zqaf]^[a]f[qg^l`]af\ana\mYd[gehYfq
CPI = Consumer price index
P>5?]f]jYdP%^Y[lgj$ZYk]\gf)&*-afl`]jklj]_mdYlgjqh]jag\2
XF2009 = 0.0125 = 1.25%
XF2010 = 1.0125 1.0125 1 = 0.025 = 2.52%
=>5=phYfkagf^Y[lgj3\]h]f\]flgfl`]fmeZ]jg^[gff][lagfklg_ja\ -(!Yf\gfl`]kar]g^l`]k]jna[]Yj]Y -(!
Q = Quality component (not yet implemented)
t = index running from 1 to 5 (basis 0 is reference year)
Source: EY analysis
aflgY[[gmflYddl`][gklkfglj][g_far]\^jgeYj]_mdYlgjq
h]jkh][lan]Yf\Z!Y\\Yddl`]af[]flan]Yf\]^[a]f[q
mechanisms embedded in the regulatory structure.
L`]j]kmdlakkmjhdmkgj\][al&
After the regulatory period, the four-year total surplus/
\][alak[Yd[mdYl]\ZqY\\af_mhl`]q]Yjdqkmjhdmk]k'
\][alk&:gl`]d][lja[alq\akljaZmlagfYf\ljYfkeakkagfkqkl]e
operators are bound to compensate the surplus and allowed
lg[geh]fkYl]l`]\][alafl`]ajhja[]k]llaf_afl`]^gddgoaf_
regulatory period.
L`ake]l`g\eYaflYafkY\aj][ldafcZ]lo]]f[gehYfa]kfYf[aYd$
accounting and regulatory performance, and it enables regulated
[gehYfa]klg[YhalYdar]gfl`]Z]f]lg^j]_mdYlgjqaf[]flan]kYf\
bear the cost of regulatory underperformance.
J]Ydar]\
Y\bmkl]\hjgl
Reasonable
rate of return
Kmjhdmkgj\][al
The reference network model maps out the areas in Spain where
each distributor is active. It determines the reference distribution
network needed to link up the transmission network (where
applicable) and distribution network with the end consumers of
electricity, based on their location, feed voltage and demand for
power and electricity.
The reference remuneration of each distribution company is
calculated by adding three components (see Figure 6):
Remuneration for investment
Remuneration for operating and maintenance
Remuneration for all other costs necessary in distribution
activities (i.e., commercial management, network planning and
energy management costs)
L`ak^gjeg^j]n]fm][YhYaeklghmk`gh]jYlgjklgghlaear]
levels of network operation and management. There is no formal
reference to RAB.
Where:
Ribase: reference remuneration level for the company i, established by the Ministry of Industry, Energy and Tourism
Ri0: reference remuneration level for the company i, updated to the year when the calculations are made
Rin2j][g_far]\j]emf]jYlagf^gjl`]\akljaZmlagfY[lanalqlgl`]\akljaZmlagf[gehYfqaafl`]q]Yjfg^l`]j]_mdYlgjqh]jag\
Qin-1: incentive or penalty for the service quality for the distribution company i in the year n related to the degree of compliance during the
year n-1 for the goals established for the service quality indices
Pin-1: incentive or penalty for the losses reduction for the distribution company i in the year n related to the degree of compliance of the
goals established during the year n-1
IAn: index to update the calculations to the year n according to the following formula:
O`]j]p50(ZYka[hgaflkYf\q5,(ZYka[hgaflk^gjl`]j]_mdYlgjqh]jag\*((1)*
Yin-12[`Yf_]afl`]j][g_far]\j]emf]jYlagf^gjl`]\akljaZmlagf[gehYfqaj]dYl]\lgl`]\akljaZmlagfY[lanalqaf[j]Yk]g^l`ak\akljaZmlgj
during the year n-1. This variation includes the increase of the investment, operation and maintenance costs and other costs
Source: EY analysis
02
Wide-ranging
\]falagfkg^
[geegf]d]e]flk
To use a metaphor from cooking, its not just the
gn]jYddj][ah]l`YleYqZ]\a^^]j]fl2alkl`]\]falagf
of what two eggs means.
Louis-Mathieu Perrin, EY
O`YleYc]kda^]\a^[mdl^gjYfqgf]o`gf]]\klg_jYkhl`]\]lYad
of power and gas regulation in more than one country is that
alkfglbmkll`]gn]jYddYhhjgY[`l`Yl\a^^]jk&L`]\]falagfg^
what we might assume to be common parameters such as the
components of the weighted average cost of capital (WACC) can
also be distinctly different by country.
Even when regulators are using the same kind of input
categories, the level of input itself can vary widely in ways
we might not expect.
>gjj]_mdYlgjqkljm[lmj]kZYk]\gfJ9:$alkafl`]\]falagf
of WACC that differences of national regulatory approach are
most evident.
The cost of debt used and the tax rate embedded in WACC
[Yd[mdYlagfkYj]ZqfYlmj]dg[Yd2l`]qeajjgjdg[YdfYf[af_
conditions and tax conditions, set by national and local
authorities.
Poland
Finland
Czech Republic
France
Slovakia
T&D
T&D
Distribution
Transmission
Distribution
T&D
T&D
+&0(
5.421%
)&0*
)&0*
4.60%
4.20%
4.01%
Debt spread
0.60%
N/A
1%
1%
N/A
0.60%
N/A
Asset beta
0.32
0.40
0.4
0.4
0.350
0.33
0.3
N/A
Equity beta
Market risk premium
?]Yjaf_ \]Zl'\]Zl#]imalq!
0.79
0.690
0.529
(&0-+
N/A
0.66
4.55%
,&0(
5%
5%
6.4%
4.50%
3%
60%
42%
30%
60%
40%
60%
60%
20.00%
Tax rate
)-&0*
19%
24.5%
24.5%
19%
34.43%
Cost of debt
+&0(
6.42%
)&0*
)&0*
4.91%
,&0(
5.13%
Cost of equity
9.05%
0&/+
3.97%
5.59%
0&(-
10.92%
6.00%
WACC
5.90%1
0&1-1
3.19%2
3.06%2
7.923%1
7.25%1
6.04%
1. Nominal rate
2. Real rate
Source: EY analysis
Poland
Finland
Czech
Republic
France
Slovakia
Greece
Switzerland
T&D
T&D
Distribution
Transport
Distribution
Distribution
Transport
Distribution
Transport
T&D
+&0(
5.421%
)&0*
)&0*
4.60%
2.20%
2.0%
4.01%
0.63%
2.32%
Debt spread
0.60%
N/A
)&0
)&0
Asset beta
0.32
0.40
0.3
0.3
N/A
0.60%
0.60%
N/A
N/A
0.55%
0.40
0.46
(&-0
0.3
N/A
0.4
1
Equity beta
0.79
0.69
0.397
0.357
N/A
0.76
0.96
N/A
0.50
Market risk
premium
4.55%
,&0(
5%
5%
6.40%
5.0%
5.0%
3%
5.90%
3.9%
60%
42%
30%
20%
40%
50%
50%
60%
27.6%
60%
)-&0*
19%
26.00%
26.00%
19%
34.43%
34.43%
20.00%
20.00%
19.20%
Cost of debt
+&0(
6.42%
3.62%
3.62%
4.91%
*&0
2.6%
5.13%
5.95%
*&0/
Cost of equity
9.05%
0&/+
5.01%
.&0(
0&-,
9.2%
10.4%
6.00%
12.9125%
N/A
WACC
5.90%1
0&1-1
4.32%1
5.99%1
0&*001
6.0%2
6.5%2
6.04%
10.99%
4.21%
Gearing (debt/
\]Zl#]imalq!
Tax rate
1. Nominal rate
2. Real rate
Source: EY analysis
For gas, our sample shows gearing ranges from 20% in Finland
^gj_YkljYfkhgjlYf\*0af?j]][]^gj_YkljYfkhgjllg.(afY
fmeZ]jg^[gmflja]k$fglYZdq?]jeYfq k]]LYZd]*!&
Its interesting to note that some countries do not apply the same
gearing assumption for gas and electricity. One reason for this is
that the regulatory periods are not strictly identical.
Short ref.
Additional
return
Maintenance
T1
T2
1% for 5 years
T3
2% for 7 years
T4
2% for 10 years
T5
3% for 10 years
T6
3% for 15 years
Source: EY analysis
03
Widespread
downward trend in
rate of return
9kk]kkaf_j]Ydh]j^gjeYf[]oal`j]_mdYlgjq
accounts
While putting pressure on returns, regulators are also tending
to narrow the scope of external factors beyond the operators
[gfljgd$o`a[`eYqY^^][ll`]ajfYf[aYdh]j^gjeYf[]&L`]^g[mk
is turning more to assessing their real performance, based on
their own business conduct.
Aside from efforts to accurately identify noncontrollable costs
(which are generally fully compensated in the regulatory formula),
one key development is the use of regulatory accounts. These
accounts compile all the elements that are not fully under one
Coverage %
Revenues
Downstream transport revenues
Revenues linked to storage facility entry and exit points
100%
50%
100%
100%
Capital costs
RAB remuneration
100%
Depreciation
100%
Assets in progress
100%
Noncontrollable costs
Energy costs
0(
<ak[j]hYf[qZ]lo]]f^gj][YklYf\j]YdafYlagfjYl]^gjGh]p
100%
Financial incentives
Incentive mechanisms applicable to investment costs
100%
100%
Other items
Interconnection costs/revenues
100%
?]jeYfq`YkYdkg\]n]dgh]\Yj]_mdYlgjqY[[gmfl$fglYZdq
including a change in volume distributed. If less energy is actually
ljYfkeall]\gj\akljaZml]\afYk[Ydq]Yj$fglYddp]\[gklkYj]
covered. The difference is balanced on the regulatory account and
oaddZ]Zadd]\afl`]f]plk[Ydq]Yj&
In addition to these regulatory accounts, some regulators,
af[dm\af_>jYf[]Yf\l`]MC$`Yn]\]n]dgh]\j]gh]f]j[dYmk]k
l`YlYml`gjar]Y\bmkle]flklgl`]f]lgh]pljYb][lgjqY^l]jY
certain period (but only under certain conditions, and not in the
jklq]Yjg^l`]j]_mdYlgjqh]jag\!&AfhYjla[mdYj$l`]j]_mdYlgj
may reconsider potential consequences of new legal, tax and
administrative provisions and court decisions if they have a
substantial impact on the net opex in the tariff.
04
Increasing focus on
Z]ll]j]^[a]f[q
Yf\imYdalq
?]f]jYd]^[a]f[qlYj_]lk
?]f]jYd]^[a]f[qlYj_]lk`Yn]lgZ]j]Y[`]\afYmfa^gjeeYff]j
by all companies during the regulatory period. Examples include:
;r][`J]hmZda[2^gj]d][lja[alq\akljaZmlagf$gn]jl`]l`aj\
j]_mdYlgjqh]jag\ *()(),!$l`]_]f]jYd]^[a]f[qlYj_]l
companies have to achieve is 9.75% (2.031% annually).
>afdYf\2l`]j]_mdYlgj`Ykk]lYf]^[a]f[qlYj_]lg^*&(.h]j
year in the current regulatory period, for electricity distribution
and transmission system operators.
HgdYf\2l`]]^[a]f[qlYj_]lak*&+0l`jgm_`gmll`][mjj]fl
regulatory period for electricity transmission and distribution.
?]jeYfq2l`]lYj_]lakk]lYl)&*-h]jYffmeafl`]jkl
regulatory period and 1.50% in the second regulatory period for
all regulated activities.
Z]f[`eYjcaf_af*((0$jklYhhda[Ylagfafl`]jklj]_mdYlgjq
period in 2009. In 2012, audit of costs in year 2011 (sample
q]Yj!^gjZ]f[`eYjcaf_af*()+$jklYhhda[Ylagfafl`]k][gf\
regulatory period in 2014.
Afl`]jklh]jag\$?]jeYf<KGk`Y\lgj]\m[])(g^l`]aj
af]^[a]fl[gklkh]jq]Yj&Afl`]k][gf\h]jag\$l`]qoadd`Yn]lg
j]\m[]*(g^af]^[a]fl[gklk&
Slovakia also runs a comparative analysis when setting gas
transport tariffs. The supporting documentation to the price
proposal for the 201216 regulatory period is a comparative
analysis of prices charged by natural gas transport operators
in the EU. The analysis primarily compares transport operators
that use an input-output tariff system and operate in Slovakias
neighboring countries.
>g[mkgfkh][a[[gklal]ek
Certain cost items are of particular importance to regulated
Y[lanala]k$Yf\kge]j]_mdYlgjkYj]^g[mkaf_gf\]n]dghaf_kh][a[
incentive mechanisms in relation to those costs.
Network losses
F]logjcdgkk]kYj]gf]g^l`]c]qYj]Yko`]j]kh][a[[gkl
containment targets have been developed by national regulators.
>a_mj]0k`gokYfaf[]flan]e][`YfakeYhhda]\lgl`]
compensation of network losses in Spain.
Afkge][gmflja]k$gh]jYlgjkYj]h]fYdar]\fgl^gjl`]ngdme]
of losses but for the unit cost of losses. Regulators are trying to
offer incentives to companies to hedge their exposure, rather
than compensate network losses by buying electricity on the
spot market.
;gehYfq%kh][a[lYj_]lk
>a_mj]0&KhYafkaf[]flan]e][`Yfake^gjf]logjcdgkk]k
J]_mdYlgjkoaddk]l[gehYfq%kh][a[lYj_]lklgfYjjgoYf\
eventually eliminate the cost performance differential between
different operators that have the same characteristics.
9_gg\]pYehd]ak?]jeYfq$o`]j]l`]j]_mdYlgj[gf\m[lkY
Z]f[`eYjcaf_]p]j[ak]lg\]l]jeaf][gehYfq%kh][a[lYj_]lk
according to the principles outlined below. The aim is to set
]^[a]f[qdaealkZYk]\gfY[geZafYlagfg^afhmlk ]&_&$lglYd
costs) and outputs (e.g., electricity transmission in kWh). Each grid
gh]jYlgjkaf]^[a]f[a]kYj]\]l]jeaf]\ZYk]\gfl`]ajhgkalagf
relative to these limits.
Loge]l`g\kYj]mk]\lg\]l]jeaf]]^[a]f[q2\YlY
envelopment analysis (DEA) and stochastic frontier
analysis). Because the two methods are based on different
approaches (stochastic and non-stochastic), they may deliver
different results.
Where:
Ph: losses energy price, in /kWh for the hour h. This price is the
hourly price of the Spanish electricity market.
2[g]^[a]flo]a_`laf_`goem[`akc]hlZql`]\akljaZmlagf
[gehYfq^jgel`]hjgl]Yjf]\Zql`]kqkl]eYkYj]kmdlg^dgkk]k
reduction. Established in 0.2 in a transitional way and applicable
since 1 January 2011.
Erealhj: Real energy lost by the distributor j at the hour h, in kWh.
Eobjhj: Loss energy target for the distribution company j in the
hour h, in kWh.
The incentive for losses is calculated on an annual basis and
m[lmYl]kZ]lo]]f#'*g^l`]lglYdj]emf]jYlagfj][]an]\Zql`]
distribution company in the previous year.
>gj]d][lja[alq$l`]lae]daf]g^l`]?]jeYfZ]f[`eYjcaf_
exercise has run as follows: cost audit in 2006 (sample year) for
Mapping power and utilities regulation in Europe 19
Bonus/malus schemes
Hjgl%k`Yjaf_e][`Yfakek
O`ad]hmk`af_[gehYfa]klgeafaear][gklkZqk]llaf_kh][a[
]^[a]f[qlYj_]lk$j]_mdYlgjkYj]Yddgoaf_l`]elgj]lYafl`]
Z]f]lo`]j]l`]qgmlh]j^gjel`]ajlYj_]lYld]Ykll]ehgjYjadq$
until the next regulatory period. But operators who underperform
are being forced to bear the cost.
Af?]jeYfq$Y[Yd[mdYlagfakh]j^gje]\YffmYddqg^l`]\a^^]j]f[]
between the allowed revenue set by the regulator and the
actual revenue linked to distributed electricity. In the case of a
positive performance, which is not linked to a change in volume
distributed, the network operator is awarded 100% of the
difference. In the case of a negative performance, the network
operator has to absorb 100% of the difference. If deviation within
a period is too high (i.e., actual revenue differs from allowed
revenue by more than 5% for electricity), compensation must be
adjusted within the period to avoid exorbitant revenue deviations.
Some countries maintain a 50% sharing mechanism around this
outperformance/underperformance target, to smooth out the
fYf[aYdaehY[lk^gjgh]jYlgjkYf\l`]aj[mklge]jk&
>a_mj]1&AlYdaYf]d][lja[alqk][lgjk`Yjaf_l`]Z]f]lkg^gmlh]j^gjeYf[]oal`[gfkme]jk
AddmkljYlagfg^hjgl%k`Yjaf_Yf\p%^Y[lgje][`Yfake&
2,600
2,400
2,200
Hjgl%k`Yjaf_
2,000
P%>Y[lgj
1,800
Edf
1,600
1,400
Hjgl%k`Yjaf_
1,200
0Q]
Yjk
P%>Y[lgj
1,000
0Q]
Yjk
800
600
400
200
2006
2008
2010
2012
2014
Q]Yj
9ddgo]\Gh]p
Source: EY analysis
=^^][lan]Gh]p
2016
2018
2020
Quality targets
Weve seen increasing interest in tools to encourage and even
^gj[]j]_mdYlgjq]^[a]f[qgfl`]gh]jYlgj[gklZYk]&L`]dYl]kl
evolution is development of quality targets, which aim to ensure
that operators do not reduce costs at the expense of the good
system performance.
L`]k]imYdalqaf[]flan]k[`]e]k[Yfafngdn]fYf[aYdaf[]flan]k'
penalties. For example, in:
Finland: actual annual outage costs are compared with
a reference level of outage costs. An electricity quality
impairment lowers the permitted rate of return for the system
operator. For DSOs, half the difference between the reference
level of outage costs and the actual level may have an impact
equal to a maximum of 20% of the reasonable return for
the year.
The Netherlands: a Q-factor impacts the annual change in
tariff based on the following factors:
Hgaflaf_l`]oYqlgkljgf_]jimYdalqaf[]flan]k
The recent Returns = Incentives + Innovation + Outputs (RIIO)
j]_mdYlgjq\][akagfZql`]MCj]_mdYlgjG^_]e`Ykafljg\m[]\Yf
extensive and potentially impactful set of quality and performance
af\a[Ylgjklgaf[]flanar]j]_mdYl]\[gehYfa]klg\]dan]jkljgf_
performance across the board.
The RIIO framework was implemented from 1 April 2013 for
Yf]a_`l%q]Yjhja[][gfljgdh]jag\ ?<)!^gj_Yk\akljaZmlagf
companies. These companies must deliver against six policy areas:
Safety
Environment
Customer satisfaction
Quality performance
Connecting customers
Valuation by businesses
Valuation by households
These policy areas and the related outputs and incentives are
kmeeYjar]\afLYZd],&
LYZd],&G^_]ekJAAGimYdalqYf\h]j^gjeYf[]af\a[YlgjkYf\j]dYl]\af[]flan]k
Policy area
Incentive mechanism
Customer service
Social obligations
Mhlg0($((([gff][lagfklghggj`gmk]`gd\k
Customer connections
Safety
Reliability
KY^]lqjakc2j]na]og^gmlhmlh]j^gjeYf[]Yll`]]f\g^JAAG%?<)$
and requirement to carry-over under delivery
Statutory enforcement
Asset health/risk/load: review of output performance at the end of
JAAG%?<)$Yf\j]imaj]e]fllg[Yjjq%gn]jmf\]j\]dan]jq
JAAGoadd[gflafm]lgZ]l`]ZYkak^gjj]_mdYlagfafl`]MC&G^_]e
is currently consulting with the electricity distribution companies
on the implementation of RIIO for the price control period
commencing 1 April 2015.
Conclusion
We believe that power and
gas regulation in Europe will
remain national in nature,
with no single European
scheme envisaged in the
near feature. We can expect
national regulators to continue
to benchmark each other,
looking for new ways to
achieve the best service and
regulatory performance at a
reasonable cost.
But while convergence around the drive
lg]^[a]f[q$imYdalqYf\[gklj]\m[lagf
will continue, the diverse nature of
regulation across the region will also
continue to present challenges and
possibly instability to all power and utility
stakeholders. EYs April 2013 Business
Pulse report ranked compliance and
regulation as the number one risk in
2013 for power and utility companies.
This underlines how important it is
to understand how local regulatory
structures continue to evolve.
Political interference
continues to create instability
Perhaps the greatest unknown in the
whole equation is the continued risk of
political interference. As commodity
prices have increased, consumers have
had to pay higher and higher prices for
power and gas. Paying higher prices is
something voters do not like to do. This
focuses the mind of public authorities on
the power and gas sector and increases
the likelihood of interference with
regulatory decisions.
Interference of this kind can cause
instability and uncertainty for those
ljqaf_lgjmfhjglYZd]]f]j_q
Knowledge is power
We hope that CFOs, local country
management, transactions teams and
j]_mdYlgjkoaddYddf\l`ak\g[me]fl
a useful tool to compare and contrast
regulation in their home markets
and abroad.
Constantly monitoring regulation
across the region will help CFOs
anticipate potential changes in
environment, provide a useful source
of ideas for running the business, help
EY contacts
Author
Louis-Mathieu Perrin
Assurance Power & Utilities Sector Resident
Tel: + 33 1 46 93 46 14
Email: louis-mathieu.perrin@fr.ey.com
?dgZYd9kkmjYf[]Hgo]jMladala]kD]Y\]j
Power and utility
companies need to
constantly monitor
local political risk and
anticipate potentially
adverse consequences
of change or nonimplementation of
regulation.
Louis-Mathieu Perrin, EY
Charles-Emannuel Chosson
Tel: + 33 1 46 93 71 62
Email: charles-emmanuel.chosson@fr.ey.com
Contributors
Belgium
Poland
Nicolas Valette
Jaroslaw Wajer
Warsaw
L]d2#,0**--//).+
Email: jaroslaw.wajer@pl.ey.com
;r][`J]hmZda[
:dY`gkdYnFe]]c
Tel: +420 225 335 234
=eYad2ZdY`gkdYn&f]e][]c8[r&]q&[ge
Finland
Mikko Rytilahti
Jakub Tomczak
L]d2#,0**--/0//0
=eYad2bYcmZ&lge[rYc8hd&]q&[ge
Romania
Anamaria Cora
L]d2#+-0,(-/0./,*
=eYad2eaccg&jqladY`la8&]q&[ge
France
Slovakia
Louis-Mathieu Perrin
Vladimir Kastier
Tel: + 33 1 46 93 46 14
Email: louis-mathieu.perrin@fr.ey.com
?]jeYfq
Spain
?j]][]
Vassilios Kaminaris
L]d2#+(*)(*00.*).
Email: vassilios.kaminaris@gr.ey.com
Italy
Massimo delli Paoli
Tel: +39 06 6753 5752
Email: massimo.delli-paoli@it.ey.com
The Netherlands
Paul Dirks
L]d2#+)00,(/+,.Email: paul.dirks@nl.ey.com
Sweden
Niclas Nikander
Tel: +46 703 29 97 36
Email: niclas.nikander@se.ey.com
Koalr]jdYf\
Alessandro Miolo
L]d2#,)-0*0.,.-,
Email: alessandro.miolo@ch.ey.com
Thomas Anner
L]d2#,)-0*0.+.,1
Email: thomas.anner@ch.ey.com
Turkey
Blent Ozan
L]d2#1(*)*+.0-/11
=eYad2Zmd]fl&grYf8lj&]q&[ge
L`]Mfal]\Caf_\ge
Chris Gilbert
L]d2#,,))/10)*+,0
Email: cgilbert@uk.ey.com
Mapping power and utilities regulation in Europe 25
Appendix
Summary of regulation by country
Belgium
;r][`J]hmZda[
>afdYf\
France
Germany
Greece
27
*0
*0
29
30
31
Italy
The Netherlands
Poland
Romania
Slovakia
Spain
32
33
33
34
35
36
Sweden
Koalr]jdYf\
Lmjc]q
The United Kingdom
37
+0
+0
39
Belgium
Belgium
Activity
Electricity distribution
Electricity transmission
Gas distribution
Regulator
Format of regulation
Regulatory periods
200912
201215
201215
Allowed return
:]lo]]f,&.+Yf\0&*0
N/D
N/D
=^[a]f[q^Y[lgj
N/A
N/A
N/A
Allowed investment
Allowed depreciation
9ddgo]\afYlagf
N/A
N/A
N/A
Investments incentive
No
No
No
Yes
Yes
Yes
;r][`J]hmZda[
Czech Republic
Finland
Finland
Activity
Electricity distribution
Gas distribution
Regulator
=f]j_]la[c j]_mdYf
Y\
=f]j_]la[c j]_mdYf
Y\
Format of regulation
Incentive based
Incentive based
Regulatory period
(years)
Regulatory periods
201014
201014
0&*00fgeafYdhj]%lYp
(2010) subject to
change during regulatory
period
=^[a]f[q^Y[lgj
Allowed investment
*()*2)0*&.e^gjl`]
whole sector
Based on planned
depreciation
Based on planned
depreciation
9ddgo]\afYlagf ,!
No
No
Investments incentive
No
No
Other incentive
mechanisms
Yes
Yes
)! >gj]d][lja[alq\akljaZmlagf$l`]eafaemed]n]dg^j]nYdmYlagf[g]^[a]flak--$^gj_Yk
distribution the minimum level is set at 50%.
(2) For gas distribution, allowed OPEX is set at the beginning of the regulatory period and if
[gehYfqh]j^gjekZ]ll]j$alk[gfn]jl]\aflghjgl^gjl`][gehYfq&
(3) Allowed depreciation is set on the basis of the planned values of depreciation in each of the
years and in year i+2 are adjusted to real (booked) values.
(4) Where CPI is the customer price index and IPS is the business service price index.
Activity
Electricity
distribution and
transmission
Regulator
Format of regulation
Regulatory periods
201215
201013
Regulated Asset
Base (RAB)
Adjusted capital
invested
(replacement value)
Allowed return
=^[a]f[q^Y[lgj
=^[a]f[qaf[]flan]
is deducted from the
gh]jYlaf_hjgl^gjLKG
and DSO: N/A
Allowed investment
:Yk]\gfl`]j]Ydar]\
Y\bmkl]\hjgl
N/A
Straight-line
depreciation
Straight-line depreciation
9ddgo]\afYlagf
CPI
CPI
Yes
Yes
Investments incentive
Yes
Yes
Other incentive
mechanisms
Yes
(1) Network operators have planned depreciation but the regulator uses straight-line depreciation.
France
France
Regulatory model
=d][lja[alq\akljaZmlagf +!
Electricity transmission
Gas distribution
Gas transport
Regulator
Commission de Rgulation de
l'Energie
Commission de Rgulation de
l'Energie
Commission de Rgulation de
l'Energie
Commission de Rgulation de
l'Energie
Format of regulation
Incentive based
Incentive based
Incentive based
Incentive based
Regulatory periods
200912
200912
201216
201316
Allowed return
Allowed investment
*&1Z^gj?JL?YrYf\
(&,Z^gjLA?>Zgl`gn]jl`]
regulatory period
=^[a]f[q^Y[lgj
Based on accounting
depreciation
Based on accounting
depreciation
9ddgo]\afYlagf *!
;HAP#C
;HAP#C
;HAP#C
;HA]^[a]f[q^Y[lgj
No
No
No
Extremely limited
Investments incentive
No
No
Yes
Yes
Yes
Yes
Yes
Yes
)! >gj_Yk\akljaZmlagfYf\ljYfkeakkagf$l`]J9:Yf\l`]Yddgo]\\]hj][aYlagfYj]j]]YnYdmYl]\]n]jqq]YjZYk]\gfafYlagf&
(2) Where:
X is a component pre-determined by the regulator factoring in productivity efforts asked to operator and change in the perimeter of operations and amounting to
%(&,^gjl`]LMJH=+j]_mdYlgjqh]jag\ ]d][lja[alqljYfkeakkagfYf\\akljaZmlagf!Yf\%(&*^gjl`]9LJ<,j]_mdYlgjqh]jag\ ?Yk\akljaZmlagf!
C5YZkgjhlagfg^l`]j]_mdYlgjqY[[gmfl [Yhh]\Yl*h]jYffmeeYpaeme!
(3) Further to a decision of the French High administrative court, the tariff for electricity distribution has been suspended. The tariff for the new regulatory period will be
set in the course of 2013.
?]jeYfq
Germany
Activity
Electricity distribution
Electricity transmission
Gas distribution
Gas transport
Regulator
Large utilities:
:mf\]kf]lrY_]flmj:gffg^[]
Smaller Utilities: Federal
regulatory autorities
Large utilities:
:mf\]kf]lrY_]flmj:gffg^[]
Smaller Utilities: Federal
regulatory autorities
Large utilities:
:mf\]kf]lrY_]flmj:gffg^[]
Smaller Utilities: Federal
regulatory autorities
Large utilities:
:mf\]kf]lrY_]flmj:gffg^[]
Smaller Utilities: Federal
regulatory autorities
Format of regulation
Incentive based
Incentive based
Incentive based
Incentive based
Regulatory periods
*((1)+Yf\*(),)0
*((1)+Yf\*(),)0
N/A
N/A
N/A
N/A
Allowed investment
N/A
N/A
N/A
N/A
=^[a]f[q^Y[lgj
)&*-afl`]jklj]_mdYlgjq
period, 1.50% in the second
period
)&*-afl`]jklj]_mdYlgjq
period, 1.50% in the second
period
)&*-afl`]jklj]_mdYlgjq
period, 1.50% in the second
period
)&*-afl`]jklj]_mdYlgjq
period, 1.50% in the second
period
Allowed depreciation
Based on accounting
depreciation
Based on accounting
depreciation
Based on accounting
depreciation
Based on accounting
depreciation
9ddgo]\afYlagf
;HA]^[a]f[q^Y[lgj
;HA]^[a]f[q^Y[lgj
;HA]^[a]f[q^Y[lgj
;HA]^[a]f[q^Y[lgj
No
No
No
No
Investments incentive
No
No
No
No
Yes
Yes
Yes
Yes
)! L`]j]akgfdqYlaeaf_\a^^]j]f[]^jgek[Ydq]Yjlgk[Ydq]Yj&F]lY[[]kk^]]kYj][l'cO`hja[]ZYk]\gfl`]]ph][l]\Yegmflg^\akljaZml]\]d][lja[alq&
A^d]kk]d][lja[alqakY[lmYddq\akljaZml]\afYk[Ydq]YjfglYddp]\[gklkYj][gn]j]\&<a^^]j]f[]oaddZ]ZYdYf[]\gfl`]j]_mdYlgjqY[[gmflYf\oaddZ]Zadd]\afl`]
f]plk[Ydq]Yj&
(2) Calculation on annual basis of the difference between the allowed revenues set by the regulator and the actual revenues linked to the distributed electricity.
In case of a positive performance, not linked to a change in volume distributed, the network operator is awarded 100% of the difference.
?j]][]
Greece
Activity
Electricity distribution
Electricity transmission
Gas distribution
Gas transport
Regulator
Revenue cap
Regulatory periods
N/A
N/A
N/A
N/A
F'9J9:*())2*&0--e&
RAE did not acknowledge the
asset revaluation surplus.
N/A
Allowed return
L`]Yddgo]\jYl]g^j]lmjfak0
of the RAB.
*())20fgeafYdhj]%lYp
Allowed investment
2011: 320m
N/A
N/A
=^[a]f[q^Y[lgj
No
No
N/A
N/A
Allowed depreciation
Based on accounting
depreciation.
Allowed depreciation 2011:
141m
Based on accounting
depreciation. Depreciation
j][g_far]\2/,&.e^gj*())
N/A
Based on accounting
depreciation
9ddgo]\afYlagf
No
No
No
1.50%
No
Yes
N/A
No
Investments incentive
No
No
No
No
No
No
No
No
Italy
Italy
Activity
Electricity distribution
Electricity transmission
Gas distribution
Gas transport
Regulator
Format of regulation
Revenue cap
Regulatory periods
201215
201215
200912
201013
N/A
N/A
Allowed return
0&(gn]jf]lafn]kle]flk
in measurement assets and
7.6% over net investments in
distribution assets
6.4% pre-tax
=^[a]f[q^Y[lgj )!
N/A
N/A
N/A
N/A
N/A
N/A
Allowed depreciation
Based on accounting
depreciation
9ddgo]\afYlagf
Included in WACC
CPI
N/A
No
Yes
No
Extremely limited
Investments incentive
Yes
Yes
Yes
Yes (3)
Yes
Yes
No
No
)! L`]P>Y[lgjk`gmd\j]\m[]l`]j]emf]jYlagfg^l`]GH=Pgn]jl`]j]_mdYlgjqh]jag\lghmk`l`]\akljaZmlagfgh]jYlgjkaf\]n]dghaf_]^[a]f[a]kafGH=P&
*! MkmYddql`]]^^][lan];9H=Pj]][ll`gk]hdYff]\afn]kle]flk Ydkglgj]Y[`l`]af[]flan]k!&L`]j]akafhdY[]YZgfmk'eYdmkk[`]e]j]dYl]\lgl`]f]logjc
]^[a]f[qgZb][lan]k&L`]j]akfgeYpaemedaeallgl`]afn]kle]flk&
+! ?YkLjYfkhgjl2=pljY%j]lmjfYddgoYf[]gff]oafn]kle]flk\aklaf_mak`]\af2 a!kY^]lq aa!\]n]dghe]flaf[YhY[alqgj aaa!\]n]dghe]flg^afhml[YhY[alq&
Poland
The Netherlands
The Netherlands
Poland
Activity
Electricity
distribution
Gas distribution
Activity
Regulator
Nederlandse
Mededingingsautoriteit
Energiekamer
Nederlandse
Mededingingsautoriteit
Energiekamer
Electricity
transmission &
distribution
Regulator
Incentive based
Incentive based
3 (currently)
3 (currently)
Mjr\J]_mdY[ba
Energetyki (URE)
=f]j_qJ]_mdYlgjqG^[]
(ERO)
Mjr\J]_mdY[ba
Energetyki (URE)
=f]j_qJ]_mdYlgjqG^[]
(ERO)
Format of regulation
Regulatory periods
201113
201113
N/C
N/C
Allowed return
Regulatory periods
201215
201114
Allowed investment
No
No
=^[a]f[q^Y[lgj
2.5% annually
RAB valued as on
+)<][]eZ]j*((0
Allowed depreciation
Based on accounting
depreciation
Based on accounting
depreciation
9ddgo]\afYlagf
;HA]^[a]f[q^Y[lgj
;HA]^[a]f[q^Y[lgj
Allowed investment
No
No
Total investments in
2012: PLN6b
Total investments in
2011: PLN2.3b
Investments incentive
Yes
Yes
=^[a]f[q^Y[lgj *!
Other incentive
mechanisms
Yes
Yes
*&+0l`jgm_`gml[mjj]fl =^[a]f[q^Y[lgj^gjl`]
regulatory period
whole sector: ranging
from 9% to 7%
Af\ana\mYd]^[a]f[q
factor ranging from
0&/(lg)&)+
Allowed depreciation
Based on accounting
depreciation
Based on accounting
depreciation
9ddgo]\afYlagf
;HA%]^[a]f[q^Y[lgj
9ffmYdYn]jY_]afYlagf
rate based on the
assumptions made by the
?gn]jfe]fl
Yes
Yes
Investments incentive
No
No
Other incentive
mechanisms
No
No
(1) These amounts are subject to annual update based on actual risk-free rate. For gas transport
and distribution, those factors are not used for the tariff years 2012/2013 and 2013/2014.
*! =Y[`<KGakYkka_f]\Yfaf\ana\mYdq]Yjdq]^[a]f[q^Y[lgjZmll`]k]Yj]fglhmZda[dqYnYadYZd]&
Romania
Romania
Activity
Electricity distribution
Electricity transmission
Regulator
Format of regulation
Regulatory periods
20122017
N/D
Allowed return
N/D
=^[a]f[q^Y[lgj
=^[a]f[q^Y[lgjak[Yd[mdYl]\gfl`]j]kmdlkg^l`]hj]nagmkj]_mdYlgjq
period with a minimum of 1%
N/D
N/D
Allowed depreciation
9ddgo]\afYlagf
No
No
Investments incentive
No
No
Yes
No
(1) Where:
JJ9:l2J9:Yml`gjar]\j]lmjf^gjl`]q]Yjl
JJJ2Yml`gjar]\j]lmjfjYl]3
RABt 1 Jan: RAB as at 1 January year t
RABt 31 Dec: RAB as at 31 December year t
A9l2p]\Ykk]lkY\\alagfk\mjaf_l`]q]Yjl
=9l2p]\Ykk]lk\akhgkYdk\mjaf_l`]q]Yjl kgd\$ojall]fg^^$ljYfk^]j]\!
(2) ANRE can reject the capital expenditure program if the investments proposed are not considered prudent. This program, once approved, will be fully included in RAB.
Slovakia
Slovakia
Activity
Electricity distribution
Electricity transmission
Gas distribution
Regulator
jY\hj]j]_md[amka]gn [`g\n]ln
jY\hj]j]_md[amka]gn [`g\n]ln
jY\hj]j]_md[amka]gn [`g\n]ln
Format of regulation
Price cap
Price cap
Price cap
5
Regulatory periods
201216
201216
201216
Allowed return
9ddgo]\hjgl5O9;;"J9: O9;;^gj
2012: 6.04% subject to changes during
regulatory period)
9ddgo]\hjgl5O9;;"J9: O9;;^gj
2012: 6.04% subject to changes during
regulatory period)
9ddgo]\hjgl5O9;;"J9: O9;;^gj
2012: 6.04% subject to changes during
regulatory period)
9ddgo]\hjglYdj]Y\qlYc]kaflgY[[gmfl
the extent of investments required to
ensure long-term reliable, safe and
effective grid and network operation.
9ddgo]\hjglYdj]Y\qlYc]kaflgY[[gmfl
the extent of investments required to
ensure long-term reliable, safe and
effective grid and network operation.
9ddgo]\hjglYdj]Y\qlYc]kaflgY[[gmfl
the extent of investments required to
ensure long-term reliable, safe and
effective grid and network operation.
=^[a]f[q^Y[lgj
Allowed depreciation
9ddgo]\afYlagf *!
S;gj]afYlagf L%*!#;gj]afYlagf
L%)!U'*3 *()*[gj]afYlagf2)&0)./!
S;gj]afYlagf L%*!#;gj]afYlagf
L%)!U'*3 *()*[gj]afYlagf2)&0)./!
S;gj]afYlagf L%*!#;gj]afYlagf
L%)!U'*3 *()*[gj]afYlagf2)&0)./!
Yes
Yes
Yes
Investments incentive
No
Yes
No
Yes
Yes
Yes
Spain
Spain
Activity
Electricity distribution
Electricity transmission
Gas distribution
Regulator
Format of regulation
Regulatory periods
200912
*((0))
*((0)*
Not public
Allowed investment
FglYkh][a[_mj]
FglYkh][a[_mj]
=^[a]f[q^Y[lgj *! +!
Allowed depreciation
:Yk]\gfJ9NYegjlarYlagf
N/A
9ddgo]\afYlagf
;HA]^[a]f[q^Y[lgj
;HAYf\AHJA]^[a]f[q^Y[lgj
N/A
No
No
No
Investments incentive
No
Yes
N/A
N/A
N/A
N/A
Sweden
Sweden
Activity
Regulator
Format of regulation
Income based
Regulatory periods
201215
N/A
N/A
N/A
Allowed return
Allowed investment
N/A
=^[a]f[q^Y[lgj
1%
No
9ddgo]\afYlagf
According to CPI
No
No
Investments incentive
Yes
No
Yes
No
Koalr]jdYf\
Switzerland
Activity
Turkey
Turkey
Electricity
distribution and
transport
Regulator
Federal Electricity
Commission
Koakk>]\]jYdG^[]g^
Energy
Format of regulation
Cost plus
No regulation/
Competitive market
Regulatory periods
N/A
Activity
Electricity distribution
Regulator
Format of regulation
Revenue cap
Regulatory periods
201115
N/A
N/A
Allowed return
N/A
Allowed investment
N/A
N/A
=^[a]f[q^Y[lgj
Yes (N/C)
Allowed depreciation
N/A
Allowed return
O9;;*()+2+&0+
9ddgo]\afYlagf
Allowed investment
N/A
N/A
Investments incentive
No
=^[a]f[q^Y[lgj
1%
No
Yes
Daf]Yjgn]jYp]\mk]^md
life on the residual value
r]jg
N/A
9ddgo]\afYlagf
N/A
No
No
Investments incentive
N/A
No
Other incentive
mechanisms
Yes
No
L`]Mfal]\Caf_\ge
Electricity distribution
Gas distribution
Regulator
G^[]^gj_YkYf\]d][lja[alqeYjc]l G>?=E!
G^[]^gj_YkYf\]d][lja[alqeYjc]l G>?=E!
Regulatory periods
201015 (1)
201321
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afdaf]oal`G>?=E_ma\]daf]k&AfYlagfYf\J9:\]hj][aYlagfYdkg
applied.
=ph]f\almj][YhalYdar]\aflgl`]J9:\mjaf_l`]j]_mdYlgjqh]jag\
afdaf]oal`G>?=E_ma\]daf]k&AfYlagfYf\J9:\]hj][aYlagfYdkg
applied.
Allowed return
4.7% pre-tax
4.2% pre-tax
Allowed investment
9n]jY_]YffmYd[gklg^)&0Zo`a[`]imYl]klg),&,Zgn]jl`]
eight year regulatory period in 2009/10 prices.
=^[a]f[q^Y[lgj
N/A
Allowed depreciation
9ddgo]\afYlagf
RPI
RPI
No
No
Investments incentive
No
No
Other incentive
mechanisms
Yes
Yes
(1) From 1 April 2015, the format of regulation for Electricity Distribution will become RIIO for the next price control period which will be the eight years from 201523.
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