Public-Private Partnership

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 Private Public Partnerships in Infrastructure
• A major new user of project financing techniques
• Infrastructure traditionally financed and managed by governments
• Demand for infrastructure has been growing faster than government
funding available, particularly in emerging economies.
• Recent trend has been to involve the private sector in the supply and
provision of these services
• For example: Roads, Bridges and Tunnels, Light Rail Networks, Airports and
Airport control Systems, Water and Sanitation, Electricity Generation,
Hospitals, Schools, Prisons

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 Private Public Partnerships in Infrastructure

• For a PPP to be successful, there has to be a clear benefit for

both the public and the private partners
• In the spectrum of public sector verses private sector service
delivery, PPPs lie somewhere between simply the
government contracting –out of a set of service delivery to
the private sector and a complete private market to plan,
design, build and operate a facility that provides the service

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 Private Participation in Infrastructure (PPIs)

• Private sector involvement requires commercial rates of

return
• Projects have to lend themselves to generating these returns.
• The public partner typically gains in the sense that a desired
project is implemented without any financial strain on the
budget

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 Private Participation in Infrastructure (PPIs)
• In many instances, the governments receive tax payments
from the project, and in certain cases, a share of the profits.
• The structure of the partnership can vary along a spectrum
from a leading private sector role to a marginal one.

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 Different PPP Models

Privatisation
De gree of Private Sector Risk
Buy-Build-Operate

Build-Own-Operate

Build-Own-Operate-Transfer

Build-Lease-Operate-Transfer

Lease-Develop-Operate

Design-Build-Operate
Operation / Maintenance
Service /License
Design-Build

Government

Degree of Private Sector Involvement

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 Public-Private Partnership Models

• Design-Build (DB): Under this model, the government contracts with a private
partner to design and build a facility in accordance with the requirements set by
the government. After completing the facility, the government assumes
responsibility for operating and maintaining the facility. This method of
procurement is also referred to as Build-Transfer (BT).

• Design-Build-Maintain (DBM): This model is similar to Design-Build except that

the private sector also maintains the facility. The public sector retains responsibility
for operations.

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 Public-Private Partnership Models (Cont.)

• Design-Build-Operate (DBO): Under this model, the private sector designs and
builds a facility. Once the facility is completed, the title for the new facility is
transferred to the public sector, while the private sector operates the facility for a
specified period. This procurement model is also referred to as Build-Transfer-
Operate (BTO).

• Design-Build-Operate-Maintain (DBOM): This model combines the

responsibilities of design-build procurements with the operations and maintenance
of a facility for a specified period by a private sector partner. At the end of that
period, the operation of the facility is transferred back to the public sector. This
method of procurement is also referred to as Build- Operate-Transfer (BOT).

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 Public-Private Partnership Models (Cont.)

• Build-Own-Operate-Transfer (BOOT): The government grants a franchise to a

private partner to finance, design, build and operate a facility for a specific period of
time. Ownership of the facility is transferred back to the public sector at the end of
that period.

• Build-Own-Operate (BOO): The government grants the right to finance, design,

build, operate and maintain a project to a private entity, which retains ownership of
the project. The private entity is not required to transfer the facility back to the
government.

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 Public-Private Partnership Models (Cont.)
• Design-Build-Finance-Operate/Maintain (DBFO, DBFM or DBFO/M): Under
this model, the private sector designs, builds, finances, operates and/or
maintains a new facility under a long-term lease. At the end of the lease term,
the facility is transferred to the public sector. In some countries, DBFO/M covers
both BOO and BOOT. PPPs can also be used for existing services and facilities in
addition to new ones. Some of these models are described below.

• Concession: The government grants a private entity exclusive right to provide

operate and maintain an asset over a long period of time in accordance with
performance requirements set forth by the government. The public sector
retains ownership of the original asset, while the private operator retains
ownership over any improvements made during the concession period.

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 Public-Private Partnership Models (Cont.)
• Service Contract: The government contracts with a private entity to
provide services the government previously performed.

• Management Contract: A management contract differs from a

service contract in that the private entity is responsible for all aspects
of operations and maintenance of the facility under contract.

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 Public-Private Partnership Models (Cont.)
• Lease: The government grants a private entity a leasehold interest in
an asset. The private partner operates and maintains the asset in
accordance with the terms of the lease.

• Divestiture: The government transfers an asset, either in part or in

full, to the private sector. Generally the government will include
certain conditions with the sale of the asset to ensure that
improvements are made and citizens continue to be served.

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 Public Private Partnerships (PPPs)
 Main characteristics of PPPs are:
1. Private sector is given responsibilities for one or more of
the following tasks:
i. Defining and designing the project
ii. Financing the capital costs of the project
iii. Building the capital physical assets (road, bridge)
iv. Operating and maintaining the assets in order to deliver the product/service
v. Significant risks is transferred from the government to private sector
2. Bundling of responsibilities or the allocation of two or more tasks
to a unique partner(s)
3. Allocation of the financing task, private financing.

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 Public Private Partnerships (PPPs)
Why PPPs have become an alternative to traditional methods for the
provision of public services?
1. Ex ante Competition (Private sector firms compete to do project)
 Marshaling the pro-efficiency forces of competition lowers costs.
 Competition at the bidding stage, ex ante.
 Less likely that tax payers will get value for money their if such ex-
ante competition does not exist
2. Scarce Skills
 Private sector has skills that is not available in the public sector
 Allocate certain tasks to a private partner who has the skills and also
the incentive to reform at a high level
3. Poor Labor Relations
 Private sector through the forces of competition may offer
a skilled, efficient and flexible labor force. The public sector labor
management may be inflexible due to tradition, civil service laws, and political
protection of certain groups of workers
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 Public Private Partnerships (PPPs)
4. Innovation
 Some parts of the project may need new approaches and
innovative thinking
 The extend of PPPs will depend on the complementarities between the
tasks
5. Risk
 Major risk can be managed better by private sector (ex.
construction-delay risk, being contractor and operator give
incentive to minimize such risk)
 Political risk is better managed by public sector
6. Economies of scale
 Private sector is taking advantage of economies of scale from
the operation of similar project in other jurisdictions, the PPP
option becomes more attractive
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 Public Private Partnerships (PPPs)

7. Observability and measurability of quality

 Concerns about the quality of services
 The partnership agreement should specify the required
quality, provide the measurement of verification of quality and
provide for enforcement of the contracts’ requirement.
8. Constrains on public sector borrowing
 Being in depth and further borrowing risk on deteriorating of
government, credit rating cost of borrowing increases
 Allocating the financial tasks to the private sector

PPPs should be embraced only when they allow government to provide

services of an acceptable quality at lower cost to taxpayers (consumers)

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 Risk Analysis
• PPPs involve a range of risks:
– Construction risks: relate to deign problems, building cost overrun and
project delays
– Financial risks: variability in interest rates, exchange rate and other factors
affecting financing costs
– Availability risks: relate to continuity and quality of service provided and in
turn depend on “availability” of an asset
– Demand risks: relate to ongoing need for the service
– Residual value risk: relate to future market price of assets

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 Risk Analysis
• It is necessary to achieve significant risk transfer in order to derive
the full benefits from the capital inflows from the private sector
and the management change
• Financing costs of risk transfer and pricing of risk are important in
efficient allocation of risks

• Risk Transfer and Financing Costs

– With complete market in risk bearing, project risk is not affected by the
particular source of financing (finance theory)
– Incomplete markets in risk bearing affect project risk as sources of
financing defines the risk of project
– Various sources of financing will determine how this risk will be allocated
– Private sector transfers risk to financial markets
– Governments transfer it to taxpayers in general
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 Risk Analysis
• Pricing of Risk
– To use PPPs, government must compare cost of public
investment and provision of service with using PPPs to provide
the service
– PPPs sometimes are an efficient way for government to relieve
its risks
– Government has to pay for the risks that it transfers to the private
sector
– Project-specific risk (e.g. interruption of supply of building
materials, labor problems, unfavorable weather, etc) can be
diversified across a number of government or private sector
projects and need not be priced by the government
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 Risk Analysis
– Market risk reflects the economic developments that
affect all projects and cannot be diversified and should
be priced properly
– private sector demands a discount rate that includes a
risk premium on the risk free discount rate that typically
government uses

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 Competition and Regulation in PPPs
• Private sector efficiency is main reason for PPPs
• Competition is the important source of efficiency in both the
private and public sector
• Competition in award of construction and service contracts
necessary to foster competition, managerial improvement and
spur innovation
• In the case where private sector sells to public sector, there is
little scope for competition after the contract is awarded and
government usually regulate prices
• Price regulation and incentive based regulations are used to
increase output, hold down prices, limit monopoly profits

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 Prerequisites for PPPs Success

• Political commitment
• Good governance
• Government expertise
• Effective Project Appraisal and Selection

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 Risk Transfer
• Need for Risk Transfer to the Private Sector
– Determines whether PPPs is a better option than to have public investment
and government provision of service
– Influences the appropriateness of accounting and reporting treatment of PPPs
• Risk Transfer and Ownership
– PPPs are legally owned by private and are legally mandated to bear the risks
of the project
– If government bears ownership related risks, it is in effect the owner of the
asset, and in that case the PPPs will be indistinguishable from traditional
methods of financing
– Different risks are associated with owning and operating an asset and risk
transfer can be assessed by reference to these rights and obligations

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 Risk Transfer
• In the case where ownership related risks are not specified by PPP
contracts, risk transfer can be assessed by reference to the overall
risk characteristics of the PPPs
• In the Non-separable contracts (ownership and service elements
cannot be distinguished) the balance between demand risks and
residual value risk borne by government is used in the UK
• Demand risk is borne by government if service payments to a
private operator are independent of future need for the service
• Residual value risk is borne by the government if the asset is
transferred to the government at more or less than its residual
value
• Other factors such as government guarantees, extent of
government influence over asset design and operation can be used
to assess the degree of risk that has been transferred away from
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