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Superintendencia de Competencia
Competencia

La competencia sí, pero ¿cuándo?

Por David López*

Fácilmente, se puede consensuar que la energía eléctrica es un bien al que todos los salvadoreños deberían tener acceso. También es bastante claro que el precio es la principal característica de la que depende que esa premisa, sencilla en su formulación, sea alcanzable. Sin embargo, a pesar de los esfuerzos por abaratar el costo, realizados por la autoridad encargada de la política energética y el regulador al diversificar la matriz energética, existen otros costos asociados al suministro que condicionan el nivel de las tarifas y que están siendo afectados por una regulación económica inadecuada del sector.

En realidad, cuando pagamos por la electricidad, pagamos tres cargos. Por un lado, el cargo por la energía eléctrica que hemos consumido. Segundo, el cargo de comercialización, cobrado por realizar el proceso de facturación. Por último, el cargo de distribución que las empresas distribuidoras cobran por operar las redes eléctricas (postes, cableado y demás equipo) ocupadas para transportar la energía hasta cada hogar o establecimiento. Estos tres cargos componen la tarifa de energía eléctrica que es aprobada por el regulador de forma trimestral.

Ahora, con esa aclaración y siendo más específicos: la sociedad salvadoreña podría estar pagando en exceso por el servicio de distribución de energía eléctrica. La Superintendencia de Competencia publicó en 2017 los resultados del Estudio sobre la distribución y comercialización de energía eléctrica en El Salvador[1], en el cual concluyó que la regulación vigente de la actividad de distribución contiene una importante incongruencia que organiza de forma inadecuada el mercado, y podría estar pasando factura a los salvadoreños, como mínimo, por unos $43.5 millones de dólares cada cinco años.

La Ley General de Electricidad establece que entre sus objetivos está desarrollar un mercado competitivo de todas las actividades del sector: generación, transmisión, distribución y comercialización. Esa disposición es problemática en el caso de la distribución, ya que se ha interpretado como una habilitación para que cualquier empresa entre al mercado a rivalizar por los clientes, en una actividad que la Teoría Económica y la experiencia internacional señalan que es más eficiente que sea organizada como un monopolio, ya que es un monopolio natural.

¿Cómo es eso un problema?

Una empresa distribuidora es propietaria de una red eléctrica de poste, cables, transformadores, que ha sido desplegada, por ejemplo, en uno o varios departamentos del país. Para instalar esa red, existió previamente una considerable inversión de recursos, y con ella se conecta a todos sus usuarios para suministrarles la energía eléctrica. Para pagarla, se reparte el costo total de la red entre todos los usuarios durante varios años, a través del cargo de distribución de la tarifa.

Si una nueva distribuidora quiere disputar los clientes que ya atienda la distribuidora, la regulación permite que ingrese al mercado, para lo cual construirá su propia red, incluso en las mismas zonas o ciudades, y buscará atraer clientes con estrategias comerciales. Sin embargo, el problema está en que los clientes estarán pagando por el transporte de la energía a través de dos redes separadas, cuando podrían abastecerse a todos los clientes haciendo uso de una sola. Así, quedarán menos clientes pagando la red inicial que se había instalado para poder atender a todos los clientes de la ciudad o departamento donde se rivalice.

¿Qué significa para nuestros bolsillos? Más allá de la contaminación visual que ocasionan los postes consecutivos y las marañas de cables en las aceras, ahora la sociedad está pagando innecesariamente el costo de dos redes en la misma ciudad. Estas son redes duplicadas que generan costos que podrían evitarse. Para los clientes que quedan en la distribuidora inicial, el cargo de distribución aumenta porque esta pierde escala, lo cual eleva sus costos unitarios, aun cuando la metodología ajuste cierta parte de ellos.

Según el estudio de la Superintendencia, el exceso en precio resultante se aproximaría a unos $43.5 millones cada cinco años[2]. Si bien un nuevo distribuidor de pequeña escala podría ofrecer precios relativamente inferiores al resto, en el corto y mediano plazo, ello podría resultar no sostenible debido a las fuertes inversiones que necesitarían para seguir expandiendo su red.

Esta situación ha sucedido en El Salvador desde hace varios años que ingresaron nuevas empresas a competir por clientes con las distribuidoras tradicionales, y que podemos verificar en zonas donde existen redes duplicadas tan cercanas como a una calle de distancia.

Lo ideal para el mercado sería tener un único operador que atiende a todos los clientes, sin tener que competir con otros por convencer a los clientes para ser quienes los suministren. Esta afirmación se basa en que en el mercado de la distribución existen costos promedio decrecientes (economías de escala) y elevadas proporciones de inversiones específicas (activos que no tienen usos alternativos en otras actividades económicas). En otras palabras, lo anterior significa que los costos de proveer el servicio se reducen conforme se incrementa el número de clientes atendidos por una misma empresa.

La Teoría económica llama a estos mercados Monopolios naturales, y representan una excepción al principio de múltiples empresas operando y compitiendo por conseguir los clientes. En estos casos, para la sociedad es menos costoso que exista una sola empresa operando en el mercado que dos o incluso más. Esto tiene una importante implicación para cómo entendemos la competencia. Por ello, en estos mercados excepcionales la competencia siempre es beneficiosa y esencial, pero debe suceder y promoverse en el momento en que se decide quién atenderá a todos los clientes, de una zona o grupo específico, usualmente acompañado y respaldado por el otorgamiento de concesiones, con carácter de exclusividad. Aun en presencia de monopolio natural, competencia sí… pero por el mercado.

Ahora, el desarrollo competitivo del mercado de la distribución es un objetivo válido para la Ley General de Electricidad, pero este no significa que es un paso libre para que cualquier firma entre a disputar el mercado, sino que cualquiera debería estar invitado a competir en el proceso de decisión de quién atiende el mercado. Normativa sectorial ha sido desarrollada, sin embargo, para hacer funcionar a nuevas distribuidoras quienes, básicamente, eligen su área de operación que debería ser revisada. Además, que el regulador debería tener facultades y herramientas para evaluar desde la perspectiva de los efectos en la eficiencia del mercado la incorporación o no de nuevas redes de distribución.

La tarea para los actores del sector estará en encontrar una solución regulatoria que concilie los intereses de todos los participantes ya presentes en el mercado con el bienestar de los consumidores, para evitar que los costos innecesarios que enfrentamos sigan creciendo. Así conseguiremos el fin último de la defensa de la competencia: la eficiencia económica que, de forma sencilla, busca que los clientes paguen los menores precios posibles, obtengan la calidad más alta y cantidad adecuada de producto, pero asegurando la sostenibilidad de las empresas y, por ende, la capacidad para continuar prestando el servicio.

* El autor es Licenciado en Economía y Negocios. Actualmente trabaja en la Superintendencia de Competencia.

  • Los comentarios en este artículo expresan la opinión de la autor-

[1]     El estudio completo puede ser consultado en: http://www.sc.gob.sv/site/pages.php?Id=1864, y la resolución emitida por el Consejo Directivo con las recomendaciones de política pública en: http://www.sc.gob.sv/site/pages.php?Id=1865.

[2]     Esta estimación se basó en el sobre precio causado por la pérdida de escala, para cada periodo tarifario, traído a valor presente. Se estimó a partir de una empresa incumbente (ya establecida en el mercado) hipotética de tamaño promedio, y el monto para todo el mercado se obtuvo multiplicando el resultado monetario por las cinco empresas incumbentes del mercado.

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