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PPP Introduction and Overview

1 PPP Introduction and Overview

  • Introduction and Objectives
  • 1. Introducing and Scoping the PPP Concept
  • 1.1 Defining PPPs for the Purpose of This PPP Guide
  • 1.2 Analyzing the Definition Proposed by this PPP Guide. Describing and Explaining the Features of a PPP Contract as a Tool to Procure New Infrastructure
  • 2. Private Participation in Public Infrastructure and Services: What is and is not a PPP
  • 2.1. Infrastructure Procurement Options that are Not Regarded as PPPs
  • 2.2. Infrastructure Procurement Options that may be Regarded as PPPs
  • 2.3. Contracts for Managing Services or Existing Infrastructure
  • 2.4. Other Private Involvement in Public Infrastructure and Services
  • 3. Types of PPP and Terminology Issues
  • 3.1. Types and Variations of PPPs
  • 3.2. Nomenclature – Other Names used for the PPP Concept
  • 4. Where PPPs are Used – Infrastructure Sectors
  • 5. When to Use PPPs: Motivations and Caveats
  • 5.1. Reasons Claimed: PPPs as a Financial Mechanism for Governments to Develop Infrastructure Projects
  • 5.2. Efficiency and Effectiveness: PPP as a Potential Source of Higher Efficiency for Infrastructure Projects
  • 5.3. Other Benefits Related to Overall Efficiency for Governments
  • 5.4. Disadvantages and Pitfalls of the PPP Option
  • 5.5. Conditions for Accessing the Benefits: Introducing the Elements and Phases of a Proper PPP Process, the Need for Project Governance and the Role of the PPP Framework
  • 5.6. The Challenge for Some EMDE[50] Countries and Especially Least Developed Countries: The Need to Adapt the PPP Approach to Macroeconomic Context and Financial Market Restrictions
  • 5.7. Conclusions: Dos and Don'ts
  • 6. Typical Basic Structure of a PPP Project
  • 6.1. Introduction to the Basic PPP Project Structure
  • 6.2. PPP Contract Structure (upstream) and Introduction to Payment Mechanism
  • 6.3. Examples of Different Scopes and Structures
  • 7. How a Private Finance PPP Project is Financed: Where the Money to Pay Construction Costs Comes From
  • 7.1. Private Finance and Project Finance[73]
  • 7.2. Financial Structure: Categories, Instruments and Sources (fund suppliers) — Financial Strategy of the Sponsor/Private Partner [81]
  • 7.3. Co-financing as a Mix of Public Traditional Finance/Procurement and Private Finance.
  • 7.4. Other Forms of Public Participation in the Financial Scheme or Intervening in Commercial Feasibility [97]
  • 7.5. Other Considerations regarding the Project Company's Financial Structure that Influence the PPP Project-Contract.
  • 8. Causes of Project Failure: The Need for Sound Process Management and Preparation of Projects
  • 8.1. What is Project Failure? Types of Project Failures
  • 8.2. Threats to a Sound Process Management
  • 8.3. Examples of Project Cancellation due to Improper Process Management [112]
  • 8.4. The Private Sector's (prospective bidders') Interest and Concerns about the Entire PPP Process
  • 9. Introduction to the PPP Framework Concept and Initial Framework Considerations. Private Sector Concerns About Frameworks and Markets.
  • 10. An Overview of the PPP Process Cycle: How to Prepare, Structure and Manage a PPP Contract
  • Appendix A – Introduction to Project Finance

PPP Introduction and Overview - Appendix A - Project Finance

1a PPP Introduction and Overview - Appendix A - Project Finance

  • 1. Introduction
  • 2. Basic Considerations of PPP Project Finance
  • 3. Ideologies of Project Finance
  • 4. A Basic Description of Major Sources of Funding
  • 5. Project Finance — Benefits and Limitations

PPP Introduction and Overview - Appendix B - Sharia Finance

1b PPP Introduction and Overview - Appendix B - Sharia Finance

  • 1. Introduction
  • 2. Traditional Istina'a
  • 3. Procurement Istina'a
  • 4. Ijara
  • 5. Supporting Agreements
  • 6. Making Payment to the Islamic Funders
  • 7. Reversion of the PPP Project Asset to the SPV
  • 8. Islamic Financing in Practice
  • 9. Tangible and Intangible PPP Project Assets

Establishing a PPP Framework

2 Establishing a PPP Framework

  • Introduction and Purpose
  • 1.1 Why have a PPP Framework?
  • 1.2 What is in a PPP Framework?
  • 1.3 Objectives of the PPP Framework
  • 1.4 Scope of the PPP Framework
  • 1.5 Choice of Legal and Administrative Instruments to Create PPP Framework
  • 1.5.1 How Varying Legal Traditions Interact with Different PPP Types
  • 1.5.2 Legal and Administrative Approaches to Establishing PPP Frameworks
  • 1.5.3 How PPP Frameworks Build on and Incorporate Pre-Existing Government Frameworks
  • 1.5.4 Framework for Sub-National PPPs
  • 1.6 Defining the PPP Process
  • 1.6.1 Identification of Projects and Screening
  • 1.6.2 Appraise the Project
  • 1.6.3 Structure the Procurement Process and the Project Contract
  • 1.6.4 Tender and Award
  • 1.6.5 Manage the Contract – Construction Phase, Service Delivery and Hand-Back
  • 1.6.6 Privately-Initiated Projects
  • 1.7 Institutional Responsibilities
  • 1.7.1 Typical Responsibilities
  • 1.7.2 Identifying and Championing Projects
  • 1.7.3 Ensuring Coordination and Best Practice
  • 1.7.4 Public Financial Management
  • 1.7.5 Approvals
  • 1.7.6 The Roles and Benefits of PPP Units
  • 1.8 Public Financial Management of PPPs
  • 1.8.1 Types of Fiscal Commitment to PPPs
  • 1.8.2 Identifying and Quantifying Fiscal Commitments to a PPP Project
  • 1.8.3 Ensuring Fiscal Commitments are Affordable
  • 1.8.4 Budgeting for Fiscal Commitments
  • 1.8.5 Accounting for, and Reporting on, Fiscal Commitments
  • 1.8.6 Controlling Aggregate Fiscal Exposure to PPPs
  • 1.9 Oversight of PPP Programs and Projects
  • 1.9.1 Role of the Legislature
  • 1.9.2 Audit Entities and Ex-Post Evaluation
  • 1.9.3 Role of the Public
  • 1.9.4 Promoting Procurement and Good Governance, and Reducing Corruption

Project Identification and PPP Screening

3 Project Identification and PPP Screening

  • 1. Objectives of the Project Identification and Screening Phase: Where We are in the Project Cycle
  • 2. Overview of the Project Identification and Screening Phase
  • 3. Identifying Needs: Entry Routes to the Pipeline (Up to Full Feasibility)
  • 4. Project Prioritization
  • 5. Option Analysis and Selection Techniques
  • 6. Technical Outline of the Selected Solution
  • 7. Information Requirements/Data Checklist
  • 8. Economic Soundness. Introduction to Cost-Benefit Analysis
  • 8.1. Performance Indicators
  • 8.2. Conversion of Financial Data (financial cash flows) into Economic Flows: Opportunity Costs, Shadow Prices and Tax Adjustments
  • 8.3. Incorporating Risk and Uncertainty into the Analysis
  • 9. Scoping the PPP Project and its Challenges
  • 10. Testing PPP Suitability and Affordability
  • 11. Project Management Plan and Project Governance Considerations
  • 12. Identifying Stakeholders and Developing the Communication Strategy: Ensuring Government Support and Managing the Stakeholders
  • 12.1. Who are the Stakeholders?
  • 12.2. Communication Strategy
  • 13. Assessing Capabilities and Needs, and Hiring Advisors
  • 13.1. Capabilities Needed to Develop the Appraisal Studies
  • 13.2. Request for Advisors
  • 13.3. Timing and Scope of the Advisory Contracts
  • 14. Screening Report
  • 15. Outcomes of this Phase
  • References

Appraising PPP Projects

4 Appraising PPP Projects

  • Introduction
  • 1 Where We are in the PPP Process
  • 2 Objectives of this Phase
  • 3 Overview of the Appraisal Phase/Process
  • 4 Detailing the Scope of the Contract, Designing the Technical Requirements and Assessing Costs
  • 4.1 Developing the Scope of the Contract
  • 4.2 Designing the Technical Requirements
  • 4.3 Consideration of Risk in the Appraisal Process
  • 4.4 Estimating Risk-Adjusted Costs
  • 4.5 Outputs of Scoping the Contract and the Design of the Technical Requirements
  • 5 Designing a Preliminary Structure of the PPP
  • 5.1 Revenue Regime and Payment Mechanism
  • 5.2 Preliminary Risk Allocation
  • 6 Developing the Financial Model
  • 6.1 The Macroeconomic Assumptions
  • 6.2 Inputting the Capital Expenditures
  • 6.3 Inputting the Operating Costs and Reinvestments
  • 6.4 The Financial Structure of the Project Company
  • 6.5 Incorporating Revenues
  • 6.6 Accounting Issues
  • 6.7 Defining the Contract Term
  • 6.8 Cash Flow
  • 6.9 Base Case, Sensitivities, and Scenarios
  • 7 Assessing the Technical Feasibility
  • 8 Assessing Commercial Feasibility
  • 8.1 Measuring Commercial Feasibility
  • 8.2 Assessing Commercial Feasibility in User-Pays PPPs
  • 8.3 Assessing Commercial Feasibility in Government-Pays PPPs
  • 8.4 Outputs of the Commercial Feasibility Assessment
  • 9 Market Sounding
  • 9.1 How to Conduct the Market Sounding
  • 9.2 Output of the Market Sounding
  • 10 Confirming Economic Feasibility: Refining the Cost-Benefit Analysis
  • 11 Assessing Fiscal Feasibility (Affordability)
  • 11.1 The Process of Analyzing Fiscal Feasibility (affordability)
  • 11.2 The Output of the Fiscal Feasibility Analysis
  • 12 Analysis of Impact on Government Deficits and Debt
  • 12.1 International Public Sector Accounting Standards (IPSAS) Number 32
  • 12.2 Eurostat standards: ESA2010
  • 12.3 Country Specific Regulation on Account Treatment of PPP Assets
  • 12.4 The Outputs of Debt Impact Analysis
  • 13 Assessing Environmental Feasibility[40]
  • 13.1 The Process of Assessing Environmental Feasibility
  • 13.2 Outputs of the Environmental Feasibility Analysis
  • 14 Assessing Social Feasibility
  • 14.1 The Scope of Social Impact Analysis
  • 14.2 The Process of Analyzing Social Impacts
  • 14.3 The Output of the Social Impact Assessment
  • 15 Assessing Legal Feasibility
  • 15.1 The Process of Analyzing Legal Feasibility and Conducting Legal Due Diligence
  • 15.2 Outputs of the Legal Feasibility and Conducting Legal Due Diligence
  • 16 Value for Money Assessment
  • 16.1 The Timing of the VfM Exercise
  • 16.2 Assessing Value for Money
  • 16.3 Outputs of the Value for Money Analysis
  • 17 The Procurement Strategy
  • 18 Formal Requirements Regarding the Appraisal of PPPs and the Conditions Established by the Framework for the Green Light Decisions
  • 19 Planning Ahead
  • 20 Appraisal Report
  • 21 Obtaining the Final Approvals
  • 22 Getting Ready for the Next Phase: Check List
  • 23 Summary of Outcomes of this Phase

Appraising PPP Projects - Appendix A - Procurement Procedures

4a Appraising PPP Projects - Appendix A - Procurement Procedures

  • 1. Introduction to tender approaches
  • 2. Main Types of PPP Tender Processes

Structuring and Drafting the Tender and Contract

5 Structuring and Drafting the Tender and Contract

  • Introduction
  • 1. Objectives of this Phase and Where We are in the Project Cycle
  • 1.1 Objectives of the Phase
  • 1.2 Where We are in the Process Cycle
  • 2. Overview of the Structuring Phase
  • A realistic timescale is essential
  • 3. Summary Description of Main Tasks to be Carried Out in the Structuring Phase
  • 4. Financial Structuring (from the Public Perspective): Defining the Financial Structure and Payment Mechanism
  • 4.1 Term Definition
  • 4.2 Pure Co-financing
  • 4.3 Public Loans: Hard or Soft Public Agency Loans
  • 4.4 Filling the Viability Gap of a User-Pays Project
  • 4.5 Equity Participation by the Government
  • 4.6 Other Ways to Increase Financial Feasibility and Affordability [14]
  • 4.7 Categories of Revenue Regimes in PPP Projects
  • 4.8 Financial Structuring Matters in User-Pays Projects
  • 4.9 Volume-Linked Payment Mechanisms
  • 4.10 Availability Payments
  • 5. Risk Allocation and Structuring[32]
  • 5.1 Introduction
  • 5.2 Defining Risk: The Risk Management Cycle [36]
  • 5.3 Risk Identification
  • 5.4 Risk Assessment
  • 5.5 Mitigation Measures (early mitigation by the authority)
  • 5.6 Deciding on Risk Allocation
  • 5.7 Contractual Categories of Risks: Compensation, Relief, and Force Majeure Events [52]
  • 5.8 Introducing the Main Project Risks and their Potential Allocation [56]
  • 5.9 Incorporating Risk Allocation into the Contract: General Comments
  • 6. Testing, Marketing and Communicating the Project before Project Launch
  • 7. Defining Qualification Criteria: Structuring and Drafting the RFQ
  • 7.1 Legal Qualification
  • 7.2 Financial-Economic Capacity Criteria
  • 7.3 Technical Capacity or Experience
  • 7.4 Short Listing – Beyond the Pass/Fail
  • 8. Structuring and Drafting the Request for Proposals. Defining Proposal Requirements and Evaluation Criteria
  • 8.1 Proposal Requirements
  • 8.2 Evaluation Criteria and Evaluation Process Regulations
  • 8.3 The Case of Competitive Dialogue, Interaction, and Best-and-Final Offers (BAFO) Type Procurement Processes
  • 9. Defining and Drafting Other Commercial Terms and Contract Provisions [82]
  • 9.1 Main Contents of the Contract: Rights, Obligations and Framework to Govern Changes and Risks
  • 9.2 Performance Requirements and Performance Management
  • 9.3 Contract Breaches, Penalty System, and Events of Default
  • 9.4 Compensation Events and Rebalancing
  • 9.5 Other Financial-Related Provisions
  • 9.6 Confidentiality and Information Disclosure
  • 9.7 Contract Changes
  • 9.8 Dispute Resolution
  • 9.9 Early Termination Provisions [97]
  • 9.10 Hand-Back Process
  • 10. Control Check and Approvals before Launching the Tender, and Planning Ahead
  • 11. Summary of Outcomes of this Phase
  • References
  • Appendix A– Description of Main Risks in a PPP and its Potential Allocation

Appendix Structuring and Drafting the Tender and Contract - Describing Main Risks

5a Appendix Structuring and Drafting the Tender and Contract - Describing Main Risks

  • 1.1 Describing the Main Risks during the Construction Phase, and Their Potential Allocation
  • 1.1.1 Land Availability and Acquisition
  • 1.1.2 Environmental
  • 1.1.3 Permits
  • 1.1.4 Design Risk
  • 1.1.5 Construction Risk
  • 1.1.6 Completion and Commissioning
  • 1.1.7 Other Potential Interruptive Events during Construction
  • 1.2 Describing Main Risks during the Operations Phase and Potential Allocation
  • 1.2.1 Revenue Risk – Demand or Volume Risk [3]
  • 1.2.2 Revenue Risk – Tariff Levels (only in user-pays PPPs)
  • 1.2.3 Revenue Risks – Fraud and Collection Risks (only in user-pays)
  • 1.2.4 Private Perspective Only – Revenue Risk – Government-Pays Counterparty Risk
  • 1.2.5 Revenue Risk - Inflation and Indexation
  • 1.2.6 Third Party Revenues and Ancillary Revenues
  • 1.2.7 Availability and QualityRisk (and revenue risk from the private perspective)
  • 1.2.8 Maintenance and Renewal Risks
  • 1.2.9 Other Operating Costs
  • 1.2.10 Technological Obsolescence and Technical Enhancements
  • 1.2.11 Other Costs – Taxes
  • 1.2.12 Residual Value/State of the Asset at Contract Expiration – Hand-Back Requirements
  • 1.3 Financial-Related Risks and Potential Allocation
  • 1.3.1 Financial Costs
  • 1.3.2 Availability of Finance
  • 1.3.3 Unexpected Needs for Funding
  • 1.3.4 Refinancing
  • 1.3.5 Transfer of Shares/Changes in Ownership
  • 1.4 Describing other Risks that Affect or may Occur in Both Phases of the Contract, and its Potential Allocation
  • 1.4.1 Changes in Law –Specific and Discriminatory Changes in Law
  • 1.4.2 Changes in Service/Scope of Works
  • 1.4.3 Force Majeure
  • 1.4.4 Vandalism and Strikes
  • 1.4.5 Insurance Requirements and Uninsurable Risks
  • 1.4.6 Private Perspective – Early Termination Risk

Tendering and Awarding the Contract

6 Tendering and Awarding the Contract

  • Introduction
  • 1. Where We are in the Project Cycle
  • 2. Objectives of this Phase
  • 3. Special Characteristics of the PPP Tender Process
  • 4. Overview of the Phase
  • 5. Time to Prepare and Submit Offers: Requirements for Proper Assessment and Preparation by the Prospective Bidders
  • 6. Managing Matters during the Bid Submission Stage in Open Tenders
  • 6.1. Launching the Tender Process [4]
  • 6.2. Bid Stage
  • 6.3. Clarifications of the Contract and RFP
  • 6.4. Assessing Potential Changes to the Contract and RFP
  • 6.5. Being Responsive
  • 6.6. Open Meetings
  • 6.7. Asking for Extensions
  • 7. Qualification Matters
  • 8. Specific Matters on Managing Dialogue and Interactive Processes: Managing the Dialogue Period and One-on-One Meetings
  • 8.1. Managing the Risk of Meetings with Individual Bidders
  • 9. Evaluation of Proposals
  • 9.1. Administrative or Compliance Check
  • 9.2. Evaluation Committees
  • 9.3. Price and Quality Evaluation Process
  • 10. Negotiation with a "Preferred" Bidder
  • 11. Award
  • 11.1. Challenging an Award Decision
  • 11.2. The Issue of No or Only One Responsive Proponent
  • 12. Contract Signature
  • 12.1. Prior Conditions
  • 12.2. Clarification versus Changes
  • 12.3. Will the Contract be made Public?
  • 12.4. Debriefing of Bidders
  • 13. The Financial Close
  • 14. Oversight / Integrity of the Tender Process
  • 15. Outcomes of this Phase
  • References
  • Special Appendix on Private Side Needs: Preparing and Submitting a Bid and Raising Finance

Appendix Bid Preparation and Submittal the private sector perspective

6a Appendix Bid Preparation and Submittal the private sector perspective

  • 6.1 Introduction and Purpose
  • 6.2 How the Private Party Targets Markets and Selects PPP Projects
  • 6.3 Bid Preparation and the Decision to Submit a Response to the RFP
  • 6.4 Putting a Consortium Together
  • 6.5 Bringing Advisers on Board
  • 6.6 Determining the Corporate Structure of the Project Vehicle and the Project Contracts
  • 6.7 Responding to the RFP and Submitting a Tender Response
  • 6.8 Fundraising

Strategy Delivery and Commissioning

7 Strategy Delivery and Commissioning

  • Introduction
  • 1. PART A – Introduction to Contract Management
  • 2. Definition of Contract Management in PPPs
  • 3. Importance of Contract Management
  • 4. Contract Management Framework
  • 5. PART B Construction Phase – Delivering and Commissioning
  • 6. Overview of the Construction Phase
  • 7. Monitoring Tasks during the Construction Phase
  • 8. Change Management in the Construction Phase
  • 9. Claims Management in the Construction Phase
  • 10. Dealing with the Private Sector's Underperformance and Non-Compliance during the Construction Phase
  • 11. Issue Management and Dispute Resolution during the Construction Phase
  • 12. Knowledge Management and Succession Planning
  • References
  • 4.1. Governance and Contract Management Team Establishment
  • 4.2. Roles and Responsibilities of the Government and the Private Partner within Contract Management
  • 4.3. Contract Administration Planning, Establishment and Execution
  • 4.4. Relationship Management
  • 4.5. Performance Management
  • 5.1. The Importance of Contract Management during the Construction Phase
  • 5.2. Complexity of the Construction Phase
  • 5.3. Reasons for Unsuccessful PPP Projects during the Construction Phase
  • 6.1. Main Stages of the Construction Phase
  • 7.1. Understanding Monitoring (performance and risk monitoring)
  • 7.2. Cost Implication Oversight
  • 7.3. Approval Processes
  • 7.4. Schedule Management in the Construction Phase
  • 7.5. Quality Management
  • 8.1. Importance of Change Management
  • 8.2. Changes in Ownership
  • 8.3. Changes in the Scope of Works
  • 8.4. Changes Caused by External Events
  • 8.5. Amendments and Renegotiation of PPP Contracts
  • 8.6. Financial Restructuring
  • 8.7. Changes in Law during the Construction Phase
  • 9.2. Dealing with Extension of Time in the Construction Phase
  • 9.3. Dealing with Force Majeure Events
  • 9.4. Process of Approvals of Claims by Private Party
  • 10.1. Mechanisms for Dealing with Under-Performance and Non-Compliance
  • 10.2. Mechanisms for Dealing with Late Delivery of Works
  • 11.1. Issue Management Procedures
  • 11.2. Dispute Resolution Procedures
  • 12.1. Importance of Knowledge Management
  • 12.2. Importance of Succession Management

Operations and Handback

8 Operations and Handback

  • 1. Introduction
  • 2. Contract Management and Monitoring during the Operations Phase
  • 3. Contract Management and Administrative Process
  • 4. Managing Private Partner Under-performance and Non-Compliance
  • 5. Managing Finances
  • 6. Regulatory Requirements
  • 7. Variation Management
  • 8. Relationship Management, Issue Management, and Dispute Resolution
  • 9. Managing Expiry, Default, and Early Termination Processes

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