Making the country workMaking the country workMaking the country work
LEARNING ACADEMY19 JULY 2002:
LEARNING ACADEMY19 JULY 2002:
INTRODUCTION1. Jhb Story
2. Spectrum of Possibility
3. Pre-PPP Structuring
4. PPP Process
5. Regulation
6. Conclusion
FINANCIALFINANCIAL INSTITUTIONALINSTITUTIONAL• Arrears - 2.1bn - 1bn bad debt• No cash in “funds”• Long term debt + call bonds 98/99 721m ; 75 on CB 99/2000 696m• Despite cuts in OP/CAP 291m deficit last 2yrs current s/fall - 257m (partly un-funded)• Next year CAP - 84m net OP - 7072m• Wastage fraud housing/water non essential bad management
• No distinction between commercial and other• 5 admins - duplication & un co-ordinated• Fragmentation - COS, divided by 5; split businesses; staff vs line functions• Gap between policy/decisions and implementation• Not performance linked• Bureaucratic procedures slow, wastage, low initiative• Weak man. info systems & management skills
• Running down infra• Reduced services• Backlog growing• Low morale/productivity 2bn - 1bn value• Bad/Under utilisation of money / people / assets
CEO
Elec HRCSPlanning & Urb
SACEDFinancePublic safetyTransportTech Serv
GenDistrFleetPolicyRegions
Bulk WaterDisposal wwLabsRds & S/watFleet
AirportPlanningMBS
Art & CultureMarketLibMuseumsSport & RecParksZooHealthEco Dev
Bud & accRev
ClustersAssetsProcure
SecurityTrafficEM SerLogistics
LRODTrainPolicy
ClustersStaffing
ITCommLegalValuation
PlanningLUMHousingInner city
Plan Com DevTech Serv CS Fin HR
Water distWaste waterWaste ManRds & S/water
HealthLibrarySport & RecArt & CultureSoc Serv
ITCommLegalValuationPropertyFleetAdmin
HousingEnvLEDProj Fac.Planning
Bud & AccAssetsProcureRevenue
ClusterEO X 6Staffing
Trans & DevStaffingPersonalODLR
ClusterEO X 6
CEO
THE SPECTRUM OFPOSSIBILITY: JHB CITY
GOVTDEPTAdmin
Bureaucratic
GOVT BUS UNTIntegrated cost
CentreEMS, MPD
CONTRACT OUT
Billing, MaintenanceMeter reading
CORPORATISATIONElec, Refuse, Zoo,
CT, FPM, Mbus,JDA, JRA, Parks
CORP/MANGMTCONTRACT
WaterPropcom
CONCESSIONNone: Jhb
Other Cities:Dolphin Coast&
Nelspruit
JOINT VENTURE
Kelvin PowerGeneration
LONG TERM LEASE
Jhb Stadium
FULL SALERand Airport
Metro Gas
Board
MD
2900 367m
Waste Management
Prog A - Utilities
Board
MD
2500 1.9bnWater & Sanitation
Management Contract
Electricity Utility
Board
MD
2800 1.7bn
Power Generation - JV
Prog B - Agencies2264 400m
Roads andstormwaterAdv Board
MDContractor
1100 294mParks and Cemeteries
MDContractor
Metro gas Rand airport
Stadiums
Prog C - Privatise 1 %
Prog D - Corporatise 7%
- Zoo- Civic- Bus Co- Property & Projects- Fresh Produce Market
Unicity Metro Council
CEO
Comm Serv Planning & Dev
Corp Ser Finance MPS
Comm HealthWelfareArts & cultureMuseumslibrariesSport and rec
“Clients”Spatial PlannLum-systemHousingM T Planning
IT/infoCommLegalHRSecurityFleetAdminFacility M\Ment
TrafficBy-lawsCrime prev.
11 RegionalDirectors - ContractorsComm HealthWelfareLibrariesSport & rec CS & FinHRAdmin supportPlanning InfoBldg ControlHousing
Exco
Prog E - 40 %Str Plan Unit
Short TermFinancial Plan
Steering ComiGoli 2010
ExecutiveExecutive
MayorMayor
Contract Contract M \ M \ MentMent
EmergEmerg Ser Ser
NEED FOR SEPARATIONOF ROLES IN GOVT.
AUTHORITY(Govt)
Sets Policy
REGULATORImplements policy
& monitorsefficiency
OPERATOR(Provides Services)
COMMUNITY/OTHER
Authority Regulator
Operator
Current Situation
New ApproachGlobalRoleplayers definedAccountability existsServices becomeefficient
Blurred accountabilityGame Ranger & Poacher in one
Services provided can never be efficient
PRIVATE SECTOR PARTICIPATION IN URBAN WATER & SANITATION SERVICES5/6 DECEMBER 2001:
Peoples CentresPeoples Centres
Zoo Civic Zoo Civic Bus Co. Bus Co. Property Property Fres h PMFres h PM
Executive Executive MayorMayor
Counc il
Contrac tsFinance
CorporateCommunity
CEOCEO
The PeopleThe PeopleGood governance
Sus tainable s ervicesSoc ial & Economic Deve lopment
Healthy and Safe EnvironmentPartic ipatory and Inc luc ivity
EMSEMS
PlaningPlaning
MPSMPS
Heritage Heritage ServicesServices
Regions X 11Regions X 11
HealthSoc ial
ServicesHous ing Librarie s
Sport &Recreation
Was teWas te
WaterWater
Electric ityElectric ity
RoadsRoads
ParksParks
PRE PPP STRUCTURINGEnabling Legislation
InformationData gathering
Ensure legislation allows for PPP. Remove uncertaintyEmpower local authorities. Contain enabling framework
Develop program for communication with : CustomersEmployees,Unions, State and National Government.Other relevant stakeholders eg. business Understanddynamics prior to choosing option. 80% of Work
Communication
Obtain data : Carry out feasibility: Finance, Humanresource, operations, fixed assets, environment, etc
Finance determine funding availability. Allocate funds. Highercosts may be incurred in short term.
PRE PPP STRUCTURINGIdentify Functional areaFor PSP
Establish InstitutionalMechanism:PSP Steering Committee
Water and Sanitation, Electricity,Solid Waste , etc
Ensure that there is strong leadership & skill todrive process. Separate from normal adminfunctions. Give Full accountability to apptd person.Appt Project leaders dedicated solely to PSP.Political & Functional system to be integrated. Ifavailable strategically select politically able person tolead PSP. Allocate financial resources to PSPprogram. Local and international. Advisors shouldbe apptd/available. Appt. labour relations advisor.Develop time frame & performance measures.Incentivise team. Regulatory system to be a project
LEARNING ACADEMY19 JULY 2002:
PRE PPP STRUCTURING• Determine and understand PPP’s.
• Assess govt’s performance in service delivery eg. Refuse ,water etc.
• Identify core function and areas of poor performance
• Govt and Management highlight the problems to all stakeholdersespecially employees and unions.
• Indicate the need to implement PPP options.
• Develop a programme and time frame to investigate and submitoptions. Information should be as detailed as possible.
• Establish a specialist team viz. Economist, financial specialist,institutional and legal specialist, labour relations
• Allow stakeholders to be given an opportunity to provide possibleselections/options for delivery.
• Report back and agree on preferred optionPPP’s
Data Required for Ring-Fencing
Human Resources
Financial Statements
Fixed Assets
ManagementReportingSystems
Decision-making
TotalInventory
Bottom LineCost of Staff
Support Services
Cost of support
Operations Business requirementsBusiness requirements
PRIVATE SECTOR PARTICIPATION IN URBAN WATER & SANITATION SERVICES5/6 DECEMBER 2001:
PSP PROCESS : JOHANNESBURG WATER
Conduct due diligence
study
Select PreferredBidder
Request forQualification
Request forProposals
Negotiations
Bidders Conference
FinaliseContract
Establish InfoCentre
Evaluate Bids
Take time : getReliable data
Put in specific Criteria
Info must beThe same for all
Put in contractFor mark up
And second best Have financial&Tech envelopes
Structure well
Match team With bidder
Keep legal teamsmall
M. FeePerf. FeeUpside Fee
Why Why FFormorm a a Separate Entity Separate Entity ??
❒ Accountability
❒ Reduce political bureaucracy
❒ Attract / retain good staff
❒ Investment
❒ Transformation
PRIVATE SECTOR PARTICIPATION IN URBAN WATER & SANITATION SERVICES5/6 DECEMBER 2001:
Water and Sanitation
PAST
Fragmented : 5 water, 5 sanitationand Sep Rev, HR, ITand Fleet
42% UFW : Capex Constr18% Technical losses24% Commercial losses
Non-payment : Sep of rolesnot commercial
Backlogs : Capexno invest plan
Customer Care : Bureaucracyno incentives
Comm delivery : inflexibleCapacity
PRESENT
SERVICEDELIVERY AGRMT
COUNCIL
BY-LAWEnables……
BOARD
Man. Contract
• 5 Years• Share upside
• functions and obligations
• standards• tariff process• KPI’s• Funding of socialobligations steppedtariff/subsidy
Produces 5yr + 1yrBusiness Plan
• Financial model• Capex plan• Delivery outputs• Perfomance targets• Dividends
Operator’sOperator’sremunerationremuneration
❒❒ Fixed fee (R25 million) - linkedFixed fee (R25 million) - linkedtotodeliverydelivery
❒❒ Incentive A (up to R20 million)Incentive A (up to R20 million)for:for:
➠➠ Human resourceHuman resourcedevelopmentdevelopment
➠➠ CapexCapex delivery delivery
➠➠ Sewer overflowsSewer overflows
➠➠ Customer serviceCustomer service
➠➠ Plant downtimePlant downtime
❒❒ Incentive B - % of improvedIncentive B - % of improvedoperatingoperatingmargin (“x” factor)margin (“x” factor)
❒Two envelopes❒Technical / Financial: 60/40❒75% hurdle on technical, withscore retained❒Financial “x” factors
➠Northumbrian Water JV =0.18%➠Vivendi-Rand Water JV =1.25%➠Thames Water JV = 5%
Bid StructureBid Structure
JOHANNESBURG WATER:JOHANNESBURG WATER:MANAGEMENT CONTRACTMANAGEMENT CONTRACT
RISK ASSESSMENT & MITIGATION• Design Risk : If desired standards of performance not met then
private party accepts the risk and pays the costs.
• Construction Risk : Performance specifications and time schedule. Private party must bear all costs.
• Operating Risk : Private party is responsible for all operatingcosts.
• Demand Risk : Private party must ensure that there is a demandfor the service. South African context requires caution.
• Tariff Risk : Contractually private party often has to accept thattariffs may not be adjusted automatically & balance costs/ revenues.
• Collection Risk : Responsibility of the private party. No guarantees from govt.
• Credit Risk : Private party takes full responsibility. But risk togovt when services get suspended due to insolvency.
LESSONS LEARNT
Due Diligence : This is most time consuming due to data reliability. Provide adequate time for process and debate. Understand the market
RFQ : Advertisements must be clear and should safeguard LG.Adjudication panel should be carefully selected. Keep ittechnical. Evaluation criteria should be determined upfront
RFP : Contract should be submitted as part of the RFP for markup.Ensure transparency throughout. Have two envelopes :Technical and financial
Pre PPP : Strong Political Will and Leadership is needed. Reliable and accurate data . Appt Skilled project managersCommunicate with all stakeholders. Put program in place to address Unions/employees
PRIVATE SECTOR PARTICIPATION IN URBAN WATER & SANITATION SERVICES5/6 DECEMBER 2001:
LESSONS LEARNTRFP Evaluation: Adjudicators should be carefully selected. Criteria
must be sent out with RFP. Be wary of point scoring & its limitations. Evaluation process should be audited.
Selection ofPreferred bidder : First and second bidders should be selected to use
as a negotiating tool. Check background of bidder.
Negotiation : Most critical phase. LG do NOT negotiate well. Neitherdo consultants. Issue of Risk and its allocation must becarefully determined. Ensure that contract mark up lead toonly a few important negotiation points. Only the lawyersget rich out of this process. Only have one legal advisor.
ContractMonitoring : Set up regulatory system in parallel with PSP process.
Identify what must be monitored . Know what must gointo contract.
PRIVATE SECTOR PARTICIPATION IN URBAN WATER & SANITATION SERVICES5/6 DECEMBER 2001:
LESSONS LEARNTCommunication : Make sure all stakeholders are informed.
Keep records of interaction –unions
Customers : Ensure that all customers are taken over byresponsible entity.
Risks : Make sure risks are properly defined andallocated eg. Revenue management. Inmanagement contract risks are with utility
Red Tape : Make sure bureaucracy is limited.
Time : Momentum must be maintained. Speed isessential but must not compromise quality
Separate Roles : Policy maker must be separated fromregulator and operator . Regulator &
• PPP’s are not a panacea for addressing government problems.
• Government must determine whether it is a delivery agent or aregulator/facilitator of services .This can be decided by assessingGovernment’s performance in service delivery.
• The above relates to how effective and efficiently are services beingdelivered, is the quality of the service provided acceptable to thecommunity, is the tariff structure affordable and acceptable , isfinance available , are skills available, is government able to deliverservices to the poor ?
• Is it a core function of government ?. Can the private sector do itbetter.
• If the answer is “no” to any one of the above then G must seekalternative delivery mechanisms.
• TREAT COMMUNITY AS IF THEY HAVE ACHOICE
• CONSTANTLY ASK R’U DOING THE BEST THATU CAN?
• IF IT IS THE RIGHT THING TO DO THENNOTHING CAN GO WRONG!!
• TAKE THE LEAP OF FAITH