Transport infrastructure provision and operations: Why should governments choose private–public partnership?

Recent transport sector liberalisation, as well as global economic crisis, is favouring the implementation of transport infrastructure projects through Public–Private Partnerships (PPP). However, there is a debate as to whether PPP schemes are a better option than conventional procurement. To this end, an evaluation framework is proposed, to assess which of these two alternative schemes for transport projects financing is preferable for the public. The proposed framework is complimentary to the Value for Money (VfM) approach and is based on a Multi Criteria Analysis (MCA). The first step is the estimation of the Public Sector Comparator (PSC) for the case of conventional procurement, dealing with construction, maintenance and operation costs revenues, as well as any costs associated with risks undertaken by the public. As for the PPP case, it includes any payments by the public sector and related risks costs. The MCA is then applied only if the PPP is found preferable for the public sector. The latter considers additional impacts, including among others the social attributes of a particular scheme, job creation, environmental impacts and safety and security aspects. The proposed framework was applied to a pilot Bus Rapid Transit (BRT) corridor infrastructure project in the city of Indore, India, in order to demonstrate its validity. The framework and its application could provide useful guidance when considering PPP for a transport project, since it demonstrates in a transparent way the society's attitude towards this project, something that is critical to its acceptance.     

Does the political and economic context influence the success of a transport project? An analysis of transport public-private partnerships

The construction and provision of infrastructure services such as transport nowadays is often based on a partnership between three main actors: public sector, private sector and multilateral lenders, under a framework of Public-Private Partnerships (PPPs). This type of partnership has been employed in a wide range of projects in the transport sector and in various contexts in developing and developed countries. Given this observation, the objective of this paper is to examine how countries’ economic and political characteristics contribute to the success of PPPs in transport investments. Special focus in the analysis is given to how the perception of corruption and democratic accountability may influence the success of a PPP project in different transport sectors. We examine a database with 856 transport PPP projects using a generalized linear model in the form of a logit model in order to evaluate the transport database covering data from 72 countries, classified in six regions. The study highlights the importance of national experience. Not only does national macroeconomic experience appear to have a relevant role, but so also does its past experience (either positive or negative) of transport PPP projects. An interesting finding from the analysis is the importance of the rest of the world’s perception of a country’s level of corruption and democratic accountability for the final outcome of a PPP project.     

基于PPP模式投资性项目的提前谋划与风险管控

基于PPP模式的投资性项目对投资企业来说存在巨大的风险,施工生产中某一环节的变化常常会引起较大的经济变动。因此,如何在投资性项目中做到提前谋划和加强风险管控是当前企业经营中迫切需要解决的问题。以江苏启东吕四港区环抱式港池PPP项目为依托,阐述PPP模式下的投资性项目的特点、存在的风险及提前谋划和风险管控的措施。     

The cost of second best pricing and the value of risk premium

Private provision of public infrastructure (PPP) is meant to give incentives to increased efficiency in construction as well in operation and maintenance of the infrastructure e.g. within the transport sector. Efficiency is not only (private) economic efficiency, but also social efficiency e.g. social marginal cost pricing of use of the infrastructure.Is it possible to design contracts concerning payment mechanisms and financial instruments for transport infrastructure that will stimulate social efficiency and optimal allocation of risks between parties? The paper discusses whether different targets can be met and whether compromises may lead to acceptable second best solutions.PPP implies an opportunity to let the user-payment give desired incentives in the form of Social Marginal Cost Pricing (SMCP). A PPP project is a set of contracts and agreements between several parties, including the Government, the private contractor, subcontractors, banks and infrastructure users. These contracts should be designed to give the right incentives to the parties to achieve optimal risk allocation and utilising of resources.Long contract-periods are a common feature of PPPs. The paper examines the way that financial solutions should be designed to achieve the goals for the PPP-projects concerning economic and social efficiency. The expected size and variation of the income stream from the project will influence the loan conditions offered by banks concerning interest rates, guarantees and repayment and also the ability to attract investors. The balance between equity and loans again influences the conditions of the loans. An additional problem is asymmetric information between parties. The private contractor usually knows more about the task than the Government (hidden knowledge), and the Government cannot have full knowledge of the efforts of the contractor (hidden actions).     

Tips and Pitfalls in PPP design

The Public-Private-Partnership (PPP) procedure is a very appealing model, but as it becomes more and more used in practice, problems and failures have been observed in the management of many projects. Many of these unfortunate experiences are consequences of errors in the implementation of the procedure, but in other cases, clear errors of conception were the cause.Indeed, there are many ways to structure a PPP and PPP is not the only way to manage an infrastructure scheme. It is thus an important task to provide guidelines on whether to use PPP or other types of procurement and, in case a PPP is preferred, on how to design it. The aim of this chapter is to contribute to this task, trying to combine theoretical knowledge and practical experience.After a review of the variety of economic characteristics of transport infrastructure and their procurement conditions, we recall the reasons that may justify this association of public and private management which is the characteristic of PPP, outlining the limits of using pure private or pure public procurement. Then an analytic process is proposed, screening the parameters which matter most for choosing the PPP procedure among many possible ones, depending on the specificities of the various transport modes. This process gives also indications on key elements for implementing a PPP.Finally, the analytic process proposed is used for a generic analysis of, respectively, the motorways and port sectors, so as to test its practicability and customizing capability for the use of public authorities.     

Toward the betterment of risk allocation: Investigating risk perceptions of Australian stakeholder groups to public-private-partnership tollroad projects

This paper presents a qualitative assessment of the risk perceptions held by key Australian stakeholder groups in the context of tollroads operated under the public-private-partnership model. The findings confirm that experience accumulated in recent years has contributed toward the betterment of risk-sharing optimisation amongst the contracting parties. The knowledge acquired through in-depth interviews supports the common view that equitable risk sharing is the vital ingredient of value for money. The proposition that the private sector is better equipped to manage commercial risks involving economic decision making whilst risks that have embedded unquantifiable social and public values and those in the domain of public governance are best left with government alone, appears to be replete with refutable implications. Public perception is a malleable concept and should be managed by both sectors.     

The regulatory function in public-private partnerships for the provision of transport infrastructure

A wide range of contractual arrangements are increasingly being used by the public sector to materialise the delegation of transport infrastructure provision tasks to the private sector, over long periods of time. This paper addresses the issue of transport infrastructure regulation in the specific context of public-private settings. Starting by the discussion on the concept of Public-Private Partnership (PPP) it is stressed that, despite the different meanings that can be found in the literature, it is possible to define a PPP by using a core group of characteristics, such as the bundling of services and the transference of a relevant part of the risks to the private sector on a long term basis. Regarding the action of the regulator, we look at three dimensions of efficiency that are expected to be pursued at the strategic level of regulatory action. However, it is acknowledged that the regulatory function is in practice rather complex since it requires balancing a multiplicity of other objectives or goals, which may vary according to specific economic conditions. In the domain of pricing, the review carried out suggests that since “first best” assumptions are not met in the “real world” it hardly seems possible that the short run marginal cost pricing “canon” could be directly used to shape pricing policies. Consequently, when considering the application of the standard neoclassical marginal cost pricing approach it is pertinent to ask whether the second best solutions can lead to efficient outcomes that might be accepted by the stakeholders. Bundling construction and maintenance tasks into a single long term contract, which is a typical characteristic of “standard” PPPs, could theoretically bring cost benefits since it allows for the possible internalization of any positive externalities that may be generated during the whole project life cycle. The economic rationale for the bundling of construction/maintenance with financing services is that it enhances the likelihood of submission of realistic bids at the procurement stage. In addition, the chances of the contractor sticking to the agreed contractual terms, after contract award, are potentially increased given the higher exposure to financial risk.     

国际某港口PPP/BOT项目招标文件案例分析

采用文本分析方法,对国际某港口项目招标文件进行分析,以帮助国际PPP/BOT项目投标人做出恰当的投标决策。分析内容包括:项目背景、招标程序、招标文件的组成、投标要求、风险分担。分析结果表明,该招标的时间安排比较仓促,不能满足投标人投标所需要的时间;招标文件的组成不够完善,没有提供投标人投标重要依据的项目特许权协议草案;项目投标要求的编制比较清晰,但涉及项目风险分担的规定比较笼统模糊,而且让特许权受让人承担法律、政策变更的风险不尽合理。认为,由于国际PPP/BOT项目具有前期沉没成本高的特点,投标者应在研究招标文件的基础上,采取"以我为主"的投标策略,设定投标的底线,并将其在投标书中体现出来,这样才能更好地实现投资国际PPP/BOT项目的目标。     

Evaluation of political risk in a shipping project

Shipping projects, as land-based ones, are evaluated by using different measures of merit based on discounted cash flows. The bulk carrying industry, where costs are known better than revenues, adopted the required freight rate (RFR) and its derivative the economic cost of transport (ECT) as its major measures of merit. Shipping is a business exposed to many unforeseen risks. Although many of these risks are beyond the control of the shipowners/operators, they should all be carefully weighed during the process of project selection designed for investment decisions. One such risk is the expropriation of shore-based facilities built by the shipping operator at one or more termini of the maritime distribution channel. The operator has to assess the value and probability of risk and translate them into a premium which he will levy on each unit of goods transported. Adding this premium to the required freight rate together with the inventory holding costs and marine insurance charges will produce the real economic cost of transport.     

Workshop report - Public policy and transport

This workshop considered the wider public policy goals of a range of transport interventions. Particular attention was paid to assessing the role of integration of the different components of the transport system and of the integration of transport with other economic sectors. This assessment was informed by Ray Pawson’s realist evaluation approach, with its emphasis on the inter-relationships between context, process and outcome. The context was provided by case studies covering small urban areas, large urban areas and inter-urban corridors. The three key processes identified related to a regulated system with public ownership and control, a deregulated system with private sector ownership (‘competition in the market’) and a system in which there was public planning of the transport system but private provision (‘competition for the market’). Outcomes can be assessed using cost-benefit analysis tools to determine impacts on economic welfare or more qualitative approaches can be used to determine the extent to which accessibility or sustainability goals have been achieved. The evidence provided suggests that wider public policy goals are more important for urban than for inter-urban transport and it thus in urban areas where integration should be pursued with most vigour. The most relevant process for achieving this would seem to be variants of the competition for the market model. Some policy recommendations are made and implications for further research and for future conferences assessed.     

How much can public private partnership really do for urban transport in developing countries?

A few cities in some of the larger developing countries in Latin America and Asia have made increasing use of multi-year concessions or franchises, competitively awarded to private companies, for construction and operation of urban transport infrastructure and for provision of public transport services. In view of the strong prospective growth of developing-country cities with large transport needs, and the rise in the emerging economies of potential new sources of private capital, it is important to see how effective PPP has so far been in this area. The experience is analyzed principally by thorough comparative review of what has actually happened for some of the main users to date: Bogotá, Santiago, São Paulo, Seoul, and several cities in both China and India. Despite delays and mistakes that have been made in development of most of the projects, the overall results, already delivered and in prospect, are very positive and urban public transport is benefiting substantially, with significant side effects on poorer people's access to work and to services, air pollution levels and road accident rates. The widest and most important advantage of the PPP arrangements, as compared with more conventional short-term contracting, is found to be the innovations, technical and managerial, developed, and, in particular, the mutual capacity building of the countries' private and public sectors and their more effective interaction. The experience in the six countries covered suggests that other developing-country cities may be best assisted to develop sound urban transport PPPs more rapidly through provision of help on chosen items among 7 elements that have proved particularly crucial but sometimes weak in the projects reviewed: Civic consultation systems, Land-use/Transport strategic planning, Land/property market management, Monitoring systems, Progressive policies, Economic regulation, and Public institutional framework for PPPs.     

Alternative financing for Bus Rapid Transit (BRT): The case of Porto Alegre, Brazil

In the 1970s, Brazil was leading the implementation of high-flow bus priority schemes, but now cities are less capable of financing public infrastructures. This paper explores the private sector participation in the provision of transit infrastructure based on Public-Private Partnerships (PPP) for Bus Rapid Transit (BRT). The Porto Alegre BRT contemplates interchange terminals planned to accommodate retail and service activities. It is expected that these areas shall generate enough revenues to remunerate private investors, under a PPP scheme, for the construction of terminals and part of the infrastructure required to upgrade some sections of the existing busways to BRT standards.     

海外水运工程项目实施阶段的安全风险管理

通过巴基斯坦码头工程项目(QICTFAP)HSE(健康、安全、环境)管理中安全风险管理的总结,介绍海外水运工程项目实施阶段的主要安全风险,以及如何通过系统化、规范化的HSE管理降低安全风险,提高项目HSE管理水平,实现项目的HSE目标。     

Reframing Engagement Methods for Climate Change Adaptation

Climate change poses known and unknown risks for coastal communities and also challenges for university faculty and local government staff who communicate about cli- mate sciences. Conceived as a way to move beyond traditional models of science communication, this project involved public and private decision makers in specific at-risk communities in Oregon (U.S. Pacific coast) and Maine (Atlantic coast). Both state projects sought to move behavior toward decisive action that results in coastal communities that are more resilient to climate variability at all scales. To promote engagement between project staffs and publics, a dialogic model of communication was advanced, beginning with interviews and focus groups that in turn shaped further engagement through workshops and targeted video products. This means of communication led to a deeper understanding of participants’ knowledge, beliefs, perceptions, values, and barriers to action related to climate change and its effects. Coinciding with this, project participant evaluations in both Oregon and Maine indicate that the workshops and videos were successful at informing them on this complex issue; and in both states, project participation led to action outcomes. We believe that applied elsewhere our multifaceted and adaptive approach will garner similar results, provided sufficient dedicated staffing and attention to methods.     

Securing public values in public transport projects: Four Dutch cases on innovation

Public transport projects, like its operations, most often have a substantial dependence on public funding. The rationale behind the public contribution is that governments on different levels want to secure certain public values by supporting public transport, e.g., mobility, accessibility, sustainability, social inclusion. These are all public values that public transport, projects and operations are expected to support. Evaluations show that the outcomes of the projects are often different than expected. The goal of the research described here was to understand what happens to the public values during the process of project realisation. Four Dutch projects were researched: ZuidTangent (a bus rapid transit project near Schiphol); ParkShuttle (a people mover near Rotterdam); Phileas (guided bus rapid transit near Eindhoven); and RandstadRail (a light rail conversion near The Hague). All the projects were initiated with innovation as one of the key elements/values. Moving away from the traditional ante-post analysis, we saw patterns in the way in which public values shift during the project. First, the projects under study show how too much focus on innovation can harm the project. Second, we see crowding out of values; high ambitions of key values during the early phases of the project lead to neglect of values which were not key to the project. Third, although more innovation was a key reason to introduce competition in the governance of Dutch public transport, it became apparent that introducing competition has complicated execution of these innovative projects significantly.     

Socioeconomic Conditions and Perceptions of Environmental Risks in the Mekong Delta,Vietnam

This study investigates the effects of sociodemographic and economic status on the differences in environmental awareness, risk perception, and stewardship of the Mekong Delta residents based on a survey conducted in person with 1,006 households across the delta system. Spatial visualization and a multiple correspondence analysis (MCA) were performed on the survey results to discover underlying factors of the participants' responses. The study results revealed that public environmental awareness in the Mekong Delta is still limited. The level of environmental awareness, risk perception, and understanding of stewardship of local people varies by location. Furthermore, how the Mekong Delta dwellers perceive environmental risks and behave toward environmental protection is unlikely to be influenced by their demographic profiles. However, they are significantly affected by the economic status including income levels and sources. Poor economic status was found to significantly hamper pro-environmental behavior of Mekong Delta people regardless of their knowledge of environmental degradation and the related consequences. These findings provide key information to assist policymakers in developing a successful and sustainable disaster risk reduction mitigation plan for the Mekong Delta region. The implications may also be applicable for other coastal zones, which are composed of similar sociodemographic, economic, and environmental conditions.     

Evaluation of progress in contractual terms: Two case studies of recent DBFO PPP projects in North America

With continuous demand for transportation infrastructure and chronic funding shortfalls, public-private partnerships (PPPs) for infrastructure provision have garnered attention in recent years in the U.S. and abroad. High profile concession deals in Chicago and Indiana have raised concerns about the protection of public interests in PPPs. Such concerns have ignited heated debates, partly driven by ideology and vested interests, but also by questionable decisions made previously. While public agencies at all levels are interested in identifying successful PPP arrangements, the variety and complexity of PPP deals, combined with local factors unique to each project, make the development of a universal evaluation framework practically infeasible.     

Urban transport lending by the World Bank: The last decade

Over the preceding decade, the World Bank committed about US$7.5bn in loans for urban transport projects in its client countries, involving total project costs of nearly US$13bn. Projects are designed by the client city/national governments and the World Bank in an interactive, give-and-take process. As is common in development finance, urban transport projects entail an investment program and a set of policy and institutional initiatives. A majority of Bank-funded operations in this period focused on public transport modes. A clear and overarching strategic thrust is evident, favoring private delivery of services with a strong public role through city-specific regulatory agencies. Depending on the context, projects involved efforts to introduce private operators and competition into an all-public set-up, or tighten up weakly regulated, “informal” public transport markets. A notable feature of many projects in the latter context is the use of investments in bus rapid transit infrastructure to reach multiple goals: improve transport services, maintain affordability for low-income passengers, attract new passengers, reduce negative environmental impacts, and leverage complementary reforms of policies and institutions. The Bank’s program in China, unique in its local context of a dynamic urban society moving away from a near-universal reliance on bicycles, initially did not focus on public transport but on urban roads and traffic management. Towards the end of the last decade, the motorization process and the outlook of decision makers entering a more mature stage, projects in China started to converge towards what the rest of the Bank’s program was doing – searching for a more sustainable path to urban transport development.     

应用PPP技术确定海外水运工程高程起算面

针对海外水运工程高程控制点资料匮乏且不稳定的现象,提出采用GPS静态精密单点定位技术(简称PPP),将首期控制点的高程统一至国际地球参考框架(ITRF)下;然后获得拟建工程在ITRF下月平均海平面,该基面可以作为预可研阶段的海外水运工程高程起算基面;最后通过巴布亚新几内亚新科考瑞港项目的实际运用,验证该方法在海外边远地区设立高程控制网的可靠性和可追溯性,为类似海外水运工程提供借鉴。