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Ensuring an enabling environment for PPPs: OECD

experiencesand the energy sector

Kensuke TANAKAOECD Centre for Co-operation with Non-Members

Japan-OECD-Vietnam Public-Private Partnership Forum3 March 2008, Hanoi

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Outline

1. 　　　 OECD and PPPs

2. Why Governments promote 　

　　　　　　　　　　　 PPPs?3. How to make PPPs a

success? - from OECD experience 4. PPPs in the energy sector5. OECD and Southeast Asia

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1. OECD and PPPs

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Widespread use of PPPs among OECD Members

Although some OECD Members have a long experience of PPPs, most Members started to use this scheme during the last two decades.

Majority of the projects have been in transportation infrastructure. Public utility and services (water, education etc) are also seen.

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Widespread use of PPPs among OECD Members (cont’)

UK, Korea, Spain, Australia have long years of expertise.

Korea has recently accelerated the use of PPPs.

Source: OECD

Top 10 OECD Members in terms of PPP value in 2004 (in US $ million)

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PPP investment in selected ASEAN countries in 2006 (in US $ million)

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2.Why Governments promote

PPPs?

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Why Governments promote PPPs?

Governments have many options for delivering

infrastructure. Why do they promote PPPs?

1 ) Additional capital: high infrastructure demand while limitations in public resources to cover investments. Tight governmental budget and difficulty to increase tax.

2) Increase efficiency and improve service delivery.

3) Value-added to consumer and public, etc.

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Increasing OECD work on PPPs

Reflecting on the needs to analyse PPP schemes, OECD recently discussed PPPs at several directorates….

“Infrastructure to 2030” - OECD Futures Project (2006, 2007)

“International Investor Participation in Infrastructure” (2006) , “OECD Principles for Private Sector Participation in Infrastructure” (2007)

“Public-Private Partnerships: in Pursuit of Risk Sharing and Value for Money” (2008)

“Transport Infrastructure Investment” (2008)

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3. How to make PPPs a success? - from OECD

experience

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How to make PPPs a success ?- from OECD experience

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“Good” environment for PPPs

“Good” PPP contracts

Incentive Risk-

sharing Affordability

Competition Institutional framework

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Two major elements to succeed with PPPs

1. “Good Contracts” to enhance the “value for money”

a) Affordability b) Risk- sharing c) Incentive Compatibly2. “Good Environment” to manage PPPs d) Competition e) Institutional/Legal framework to

manage PPPs f) Macroeconomic stability, etc.

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Demonstrate “affordability” - from OECD experience

UK – sensitivity analysis Australia – Public Sector Comparator

(PSC) process France – reference to the Ministerial

programme Hungary- imposed budgetary limit to

the project

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Optimal risk sharing - How to allocate the PPP risks?

Different types of risks should be transferred to the party best able to manage it in the most cost effective manner.

- Private and public should identify and analyse the possible risk when concluding PPP.

Optimal risk sharing enhances incentives for private companies to finish the project.

Inappropriate allocation will increase the cost of the project through “risk premium”.

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Fully risk transfer

Very limited risk sharing

Design- Build

Design- Operate- Transfer

Design- Own- Operator

Design- Build- Operate- Maintain

Concession

• Different types of PPPs provide different types of risk sharing. •　 Identifying the most effective type of PPP is crucial.

▲ 　 Relationship the degree of Risk- sharing and PPP project type

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• Different risks - global risks, elementary risks, political risk, borrower’s credit risk, sponsor’s credit risk, sovereign risk, project risk (completion risk, operation and management risk, input and output risk, financing risk) .

• Private sector is better suited to assume commercial risks and public sector is to assume political and legal risks (?)

Optimal risk sharing - How to allocate the PPP risks?

(cont’)

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Commercial risks – “supply” and “demand” risks.

- Ability of the private sector to bear the

risks. - Free-rider problem Korea- Minimum Revenue

Guarantee (MRG) scheme, various tax benefits, etc.

Optimal risk sharing - How to allocate the PPP risks?

(cont’)

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Ensuring incentive compatibility

Incentive compatible contracts will give the right incentive to both parties to implement the project.

Flexibility and rigidity of the contract? - Theoretical argument- contract theory

(Hart and Moore) - Experience of UK: providing flexibility in

the contract

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PPP contract design should be

a tailor made process considering several elements.

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Total PPP investment by type of private participation(1990-2006)

(US $ million)Source: WB PPI database

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Even if the contract itself is well designed, without a “good environment”, it’s difficult to achieve the objective.

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Enhancing competition

The level of competition in both the pre-and post-contract stage is crucial.

a) Pre-contract stage (Competition “for” the market ) - competitive bidding process – example of UK. b) Post-contract stage (Competition “in” the market) - “contestability” of the market - example of France.

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Institutional framework to manage PPPs

from OECD experience Performance of PPPs should be measured

appropriately. – “Performance indicators” - UK, Australia,

France, Hungary, etc.

Supporting PPP schemes: “PPP unit” - experience of Netherlands and

Australia.

Comprehensive legal framework - Turkey

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“Good environment”- other points

1) Efficiency gains and differences - Different interest rates paid by

government and private sector will effect the net benefit of the project to the government.

2) Should Infrastructure be paid for by taxes or charges?

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4. PPPs in the energy sector

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Total PPP investment by sector in selected ASEAN countries (1990-

2006)

Source: WB PPI database

(US $ million)

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Total PPP investment in the energy sector by type of private participation in selected

ASEAN countries (1990-2006)

Source: WB PPI database

(US $ million)

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Total number of PPP projects by region and type (1990-2006)

Source: WB PPI database

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PPP investment in projects by region and type

Source: WB PPI database

(US $ million)

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Some examples from OECD Members

Turkey: New PPP legal framework- Unify the PPP legislations (i.e.

comprehensive legal framework)- Provide legal basis for additional PPP

models- Establish a central PPP unit

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Ireland: The Alternative Energy

Requirement (AER) programme

- Government support mechanism for renewable energy in the Irish market.

- It provides successful bidders with a 15-year power purchase agreement (PPA) , at guaranteed prices, which are index linked.

Some examples from OECD Members

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USA: Advanced Turbine System (ATS)

- ATS is to improve fuel efficiency in power generation and reduce emissions of harmful pollutants.

- Governments can encourage more radical innovation in technological fields that are mature and may lack sufficient incentives to explore new technological approaches.

Some examples from OECD Members

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5. OECD and Southeast Asia

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OECD and Southeast Asia

Ministerial Council Meeting 2007, May, I, (iv).

Invites the Secretary-General to explore and develop

recommendations to Council on how to expand the OECD’s relations, including through enhanced engagement, with selected countries and regions of strategic interest to the

OECD, identified by Council. In light of its growing importance in the world economy, priority will be given to South East Asia with a view to identifying countries for possible membership.

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OECD and Southeast Asia

• Several ways of participation:

Global Forum, Regional Forum, Observer, Ad-hoc Observer, etc.

• “Regional integration” in Southeast Asia

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Thank you.