2.4.5 For services where the public agency will recover part or all of its costs from the users, the fees paid by the users do not necessarily have to be the same as the PPP payment, because the public agency can set the fees based on its subsidy policies. In a PPP deal, the public agency can collect the fees from the users at fee rates set by the agency. The public agency then pays the PPP provider for the PPP services that are delivered. If the fees charged are insufficient to cover the payments to the PPP provider, the public agency will have to "top-up" the difference. This is equivalent to providing a subsidy to the users.