public investment management for public private partnerships pim for ppp jkim
TRANSCRIPT
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PublicInvestmentManagementfor
Public
Private
Partnerships:
A
PIM
for
PPPDiagnosticFramework
JayHyung Kim
WorldBank,
PRMPS
ICGFMWinterConference,WashingtonDC
December911,2013
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Outline
WhytheNeedforaUnifiedFrameworkIntegratingPIMandPPP?
BenefitsfromaUnifiedFramework
ChallengestoHavingaUnifiedFrameworkinPractice
UnderstandingtheDifferences:ThePPPContract
PIMforPPPDiagnosticFramework:EightplustheContractFeatures
Stage1:StrategicGuidanceandPolicyforPPP
Stage2:
A
Unified
Framework
for
Project
Appraisal
Stage3:IndependentReviewoftheAppraisal
Stage4:PPPProjectSelectionandBudgeting
AnExtraFeature:ThePPPContract
Stage5:
PPP
Project
Implementation
Stage6:PPPProjectAdjustmentbyRenegotiationandRefinancing
Stage7:PPP OperationandMaintenance
Stage8:PPPProjectCompletionandExPostEvaluation
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WhytheNeedforaUnifiedFrameworkIntegratingPIMandPPP?
Mostcountrieshavebeenmanagingpublicprivatepartnership(PPP)
projectsseparatelyfromtraditionallyimplementedprojects(TIPs).
PPPshavebeenmostlyappraised,selected,budgeted,and
monitoredseparately
from
TIPs.
Thisdisparityhasunderminedadequatepublicfinancial
managementandcreatedunduefiscalrisks,causingfiscalconcerns
withrespecttoappropriateformsofaccounting,reporting,
budgeting,and
other
processes.
Fromafiscalpointofview,a principalkeytoinitiatingPPPprojectsisto
establishwhetheragovernmentcanmaintainthesameleveloffiscal
efficiencyandsustainabilitythroughPPPasthroughTIP.
Importantto
establish
the
fact
that
there
should
not
be
such
athing
aPPPprojectintrinsically PPPisaformofimplementingapublic
investmentproject.
AunifiedframeworkforintegratingbothTIPandPPPisinneed.
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BenefitsfromaUnifiedFramework
Helpensuring
consistent
assessment
and
decision
making
Thechoicebetweena PPPandTIPisoftenskewedbyfactorsotherthan
valueformoney.PoliticalpreferencefororagainstPPPsmayplayarole
inskewingchoicesandaffectingoutcomes.
Aunified
framework
has
the
potential
to
minimize
subjective
decisions
concerningTIPversusPPPimplementation.
Helpsupportingoptimalrisktransfer
Ifeachproject,whetherTIPorPPP,isseparatelymanaged,theconcept
ofoptimal
transfer
from
one
to
the
other
may
not
be
ensured.
Helpavoidingunmanagedfiscalriskswhileimprovingtransparency
Theframeworkmaydiscourageparallelbudgetingbyreportingthe
knownandpotentialfuturefiscalcostsofPPPsintraditionalbudget
system.
BystrengtheningproceduralcontrolsonPPPcommitments,the
frameworkhelpstoimproveoveralltransparencyinthePFMsystem.
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ChallengestoHavingaUnifiedFrameworkinPractice
Constraintsanddifficultiesremaintoswiftlyapplysuchaunifiedframework.
Itisimportantthereforetoidentifycommonalitiesanddifferencesbetween
TIPandPPP byrunningthroughthePIM stageswhichcorrespondtoeight
must
have
features
for
PPP
and
to
discuss entry
points
to
move
toward
such
a unifiedframework.
NeedtodevelopaPIMdiagnostictoolforPPP:PIMforPPP
Stage1:StrategicguidanceandpolicyforPPP
Stage2:
A
unified
framework
for
project
appraisal
Stage3:Independentreviewoftheappraisal
Stage4:ProjectselectionandbudgetingforPPP
Stage
5:
PPP
project
implementation Stage6:PPPprojectadjustmentbyrenegotiation/refinancing
Stage7:PPPoperationandmaintenance
Stage8:PPPprojectcompletionandexpostevaluation
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UnderstandingtheDifferences:ThePPPContract
KeyissuesthatthePIMforPPPwillneedtoaddressarethosethat
differentiatethetwoformsofimplementation.
PPPsaredifferentfromTIPsinthattheyneedtoattracttheattentionand
resources
of
private
investors,
lenders
and
operators
by
the
contract. InaPPPimplementation,thecontractTheProjectAgreementtakeson
evenmoresignificancethaninaTIPimplementationasitframesthe
entirerelationshipbetweentheresponsiblegovernmententityandthe
privateentity.
ThePPPContractshouldbesubjecttospecialattentioninPIMforPPP
assessment.
ThereisoneimportantexceptiontotheconsistencyofthePIMeight
musthavefeatures:thePPPContract.
ThePPPContract willdefinethemeansbywhichtheassetsunderlying
thecontractaredesigned,built,financedandoperatedforasubstantial
numberofyears.
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PIMforPPPDiagnosticFramework:
EightplustheContractFeatures
-
1
Guidance
&
Screening
2
Formal
Project
Appraisal
3
Appraisal
Review
4
Project
Selection
&
Budgeting
7
Service
Delivery
6
Project
Changes
5
Implement
ation
8
Project
Evaluation
ThePPPContract
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PIMforPPPDiagnosticFramework:
StrategicGuidanceandPolicyforPPP(Stage1)
PPPsareoftenchosenwithoutanyintegratedstrategicguidanceand
coordinationbetweenTIPandPPPimplementationmethods.Theyaremostly
managedasstandaloneprojectsorinitiatives.
Establishing
strategic
screening
and
planning
guidance
for
potential
PPPs
shouldthereforebethestartingpointbecauseitoffersthefollowing
fundamentaladvantages:
BylistingPPPlegalandinstitutionalarrangements,somegovernmentscan
moredirectlysignalwhereandinwhichsectorsprivatecapitalisrequired
tobenefit
the
public.
Onemightarguethatsuchrestrictionslimittheflexibleandinnovative
natureofPPPs.However,anexplicitlegalandregulatoryframework
facilitatestheinitiationofPPPprojectsasitconcedestotheprivatesector
the
right
for
initiation
or
participation.
Thegovernmentshouldalsoissueguidelinesongoodpracticethatreflectsthe
importantdifferencesbetweenstakeholdermanagementinTIPandPPP.
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PIMforPPPDiagnosticFramework:
AUnifiedFrameworkforProjectAppraisal(Stage2)
ItisimportanttoprovidefiscalregulationforPPPprojectassessmentswiththesamecareappliedtoTIPimplementation.
Astandardizedexampleforprojectappraisalina unifiedframeworkcouldbe
composedof
two
phases:
(a)
decision
to
proceed
and
(b)
decision
to
implement.
(a)Decisiontoproceed(preliminaryfeasibilitystudy) Apreliminaryfeasibilitystudycouldbeconductedtoprepareforthe
decisiontoproceedandafullpreparationina laterstage.Thepreliminary
feasibilitystudy
not
only
assesses
whether
to
proceed
with
the
full
project
preparationbutalsopushesthegovernmenttoinvestinmoredetailedprojectpreparationinadvance.
(b)Decisiontoimplement(valueformoney[VFM]assessment) Iftheproposedprojectappearstobefeasible,aVFMassessmentwould
then
assess
the
implementation
optionsTIP versus
PPP.
Basically,governmentcostsandprojectinputsofan oftenknownpublicsectorcomparatorarecomparedagainstthoseoftheprojectedriskadjustedcostsofa PPPalternativetoassesswhetherthePPPmightachievebetterVFM.
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PIMforPPPDiagnosticFramework:
AUnified
Framework
for
Project
Appraisal
(Stage
2continued)
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VFM(PPP) < VFM(PSC)VFM(PPP) > VFM(PSC)
Note: Note:VFM = value for money. PSC = public sector comparator. PPP = public-private partnership.
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PIMforPPPDiagnosticFramework:
IndependentReviewoftheAppraisal(Stage3)
InthecaseofPPPs,theroleofindependentpeerreviewsmaybeespecially
importantgiventheroleofdedicatedPPPunits.
Themoretheevaluatingentityisindependentfromaparticular
deliverymethod
or
agency,
the
more
its
judgment
is
likely
to
be
unbiased,whichfavorsandfacilitatesanoptimalpartnershipbetween
twoparties.
PPPUnitasaPPPPromoteroraGateKeeper?
Thetwo
roles
of
the
unitas
aPPP
promoter
or
an
independent
appraisermayactuallybeinconflictwitheachother.
Inlightoftheserisksandpossibleconflictsofinterest,thekey
recommendationisthattherebestrictindependencefromthedirect
interestsofspendingministriesandagencies.
Thesystemofindependentreviewshouldbeformalizedor/andsupervised
bytheMinistryofFinance,andthereviewersarefullyindependentandhave
novestedinterestintheoutcome.
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PIMforPPPDiagnosticFramework:
ProjectSelectionandBudgetingforPPP(Stage4)
AccountingPPPs:
Theabsenceofclearandoperationallyrelevantaccountingstandardslimitsthe
enforcementofspendingcontrols,andthereforePPPprojectsoftencircumvent
spendingceilingsandfiscalrules.
However,recent
developments
in
international
accounting
and
statistics
standards,
suchastheIFRSandtheIPSAS,increasinglyreducetheopportunitiestousePPPsto
distortfiscalrealities.
BudgetingPPPs:
IMF(2006)andOECD(2012)addresstheprinciplethatbudgetdocumentationshould
transparentlydisclose
all
information
possible
regarding
the
costs
(capital
and
recurrent),explicitliabilities,andcontingentliabilitiesofPPPs.
WhengovernmentsprovideupfrontpaymentstoPPPs,thepaymentsrequiredare
similartothoseforTIPs,andtheycanbebuiltintoannualbudgetsandthemedium
termexpenditureframeworkrelativelyeasily.
SafeguardCeilingforPPPs:
Giventhedifficultiesindecidingwhethera particularPPPcommitmentisaffordable,
limitsorceilingsonaggregatePPPexpenditurecanbea helpfulwaytoensurethat
thegovernmentstotalexposuretoPPPsremainswithinmanageablelimits(for
examples:Brazil,
Hungary,
Korea,
etc.)
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PIMforPPPDiagnosticFramework:
ThePPPContract(AnExtraFeature)
AnextraassessmentofthePPPContract,whichlinkstheprojectselection
process(instagesof14)withtheprojectimplementationprocess(instages
of58),isimportanttoensureconsistentdecisionmaking.
Checkquality
and
comprehensiveness
of
the
Contract,
and
compare
with
internationalgoodpractices.
TheContract setsoutthewayinwhichtherisksareapportionedbetween
thepartiestotheagreement.Itprofoundlyaffectstheentireeffectiveness
andefficiencyoftheprojectanddeterminestheoutcomes.
Whilstitcouldbearguedthatthequalityofthecontractitselfisonlya
reflectionoftheoverallframework,itcannonethelesspointspecifically
toweaknessesinthatframeworkandinparticularintheknowledgeand
negotiatingskillsofpublicofficialsandtheiradvisers.
TIPprojects
have
contracts
too,
mainly
construction
or
engineering
contracts.Whilsttheseareimportantinthemselves,theydonot
encompassaworkingrelationshipbetweenpublicandprivatesector
entitiesforperiodsofupto25or30years.
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PIMforPPPDiagnosticFramework:
PPPProject
Implementation
(Stage
5)
DuringimplementationofaPPPproject,VFMoutcomesarecontingenton
effectivemanagementovercontractterms.
Poorcontract
management
with
the
private
partner
can
result
in
higher
costs,wastedresources,andimpairedperformance.
Acompetitivebiddingprocess(whilenottheonlypossiblewayofselection)is
essentialtoensureVFMandoptimalallocationofriskbetweenthepublicand
theprivatesector.
Itisusefultodevelopandannouncestandardimplementationguidelinesfor
decidingprocurementstrategy,managingbidprocesses,developingmodel
projectagreementandstandardclauses.
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PIMforPPPDiagnosticFramework:
PPPProjectAdjustmentbyRenegotiationandRefinancing(Stage6)
Asprojectsenterintotheimplementationphase,itisessentialtoclearly
understandtheprocessofPPPprojectadjustment,particularlyregardingthe
twodistinctcasesofrenegotiationandrefinancing.
Before
major
adjustments,
reassessment
of
economic
viability
and
VFM
is
requested;thiswouldenablethegovernmenttorechecktheimpactofchanges
inprojectcontentsorthebusinesscaseaswellastoscrutinizetheadequacyof
theadjustment.
Renegotiation:
Renegotiationmeansanadjustmentorchangeintheprojectagreement
betweentwoormorepartiesinaPPP.
ExanteVFMshouldnotbenegativelyaffectedwheneverrenegotiationis
made.Anyrenegotiationprocessshouldbemadetransparentlyand
subjectto
the
law.
Refinancing:
UnderthetermsofPPPprojectagreements,thegovernmentmayexpectto
sharetherefinancingbenefitsequallywiththeprojectcompany.
Thereshouldbeclearrulesinplaceformanagingrefinancing. 15
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PIMforPPPDiagnosticFramework:
PPPOperationandMaintenance(Stage7)
Bydefinition,a largeportionofvalueformoneyinPPPsshouldbecreatedby
moreefficientmanagementofthedeliveryoftheservicesandoperationand
maintenanceoftheassets.
Toachievethevalueformoneyenvisagedatthesigningoftheproject
agreement,both
the
government
and
the
private
partner
need
to
make
surethattheplannedallocationof responsibilitiesisclearandthatrisks
areoptimallysharedandbalanced.
Eachpublicauthoritymanagesprojectsbyfollowingtheprotocolsstipulated
inthe
project
agreements
and
receiving
project
progress
reports.
Performancechecksareconductedasspecifiedinthestandardmaintenance
qualityrequirement.
Thepurposeoftheperformancecheckistoassesswhetherservice
deliveryoutputs
and
outcomes
are
in
accordance
with
the
project
agreementandoutputspecification.
Deductionscanbeappliedtothepaymentsfromgovernmenttoprivate
partnerforpoorperformancetopromoteprivatesectoraccountability
andincentivizebetteroperationalperformance.
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PIMforPPPDiagnosticFramework:
PPPProjectCompletionandExPostEvaluation(Stage8)
TheevaluationofPPPprojectsisextremelydifficultbecauseofboththe
conceptualslipperinessandthelargenumberofdisciplinesinvolved
economics,accounting,law,politicalscience,engineering,andsoon.
Difficultinpracticetoprovebettervalueformoney:TraditionalversusPPP
Intheoryandwishfulthinking:checkbetterVFMthroughprojectappraisal In
practice:twoseparatetracksfortraditionalpublicinvestmentandPPPs
Difficulttocheckandcompare.
OnewaytoevaluatePPPs,nonetheless,istotraceoutevidenceofcost
savingsand
efficiency
gain
as
well
as
evidence
of
PPP
contribution
to
the
nationaleconomy:
Froma project pointofview:whethergradualimprovements,comparedwiththecasesofconventionallyimplementedprojects, havebeenmadeintheefficiency
ofcosts,tollrates,andeconomicratesofreturn.
Froma widerpointofview:PPPcontributiontothenationaleconomy,whethertheyhaverippleeffectsonthenationaleconomythroughseveralchannels:
economicgrowthresultingfromtheinflowofprivatecapital;increasedsocial
welfareresultingfromthetimelydeliveryofsocialservices;andtheearly
realizationofsocialbenefits.
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Annex:APIMforPPPIndicatorAssessmentTool
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PIMforPPP SubjectArea
StrategicGuidance
and
Policy
1 ScreeningofProjectsagainstPolicyPriorities
2 Effectivenessofthe RelevantLegalFramework
3 EffectivenessoftheRelevantInstitutionalarrangements
4 Stakeholdermanagement/engagement
5 RoleofAdvisers
ProjectAppraisal
6 Appraisal
rules,
guidance
and
practice7 PublicSectorComparator(PSC)
8 Comprehensivenessoftheappraisalprocess
9 Bundlingprojects
IndependentReviewofAppraisal
10 Qualityandpractices
Selection and Budgeting
11 FiscalRisk
12 Transparencyand
accounting
treatment
ThePPPContract
13 Qualityandcomprehensivenessofcontractsbasedonstandard
preagreedpositions
14 Comparisonofkeycontractualtermswithinternationalgood
practice
ProjectImplementation
15 Implementationpractices
16 ProcurementProcessandPracticesinPPPprojects
17 Timelinessofimplementation
ProjectAdjustment
18 AdjustmentPractices,EffectivenessandEfficiency
19 Refinancing
FacilityOperation
20 Contractmanagementpractices
21 AssetRegisters
CompletionReviewandEvaluation
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ThankYou
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