Agazaryan N.V. Analysis of world experience in the application of the mechanism of public-private partnership // Public-private partnership. - 2016. - V. 3. - No. 2. - S. 151-172. - doi: 10.18334^.3.2.37071
Publication language: Russian
Public-Private Partnership, 2016, Volume 3, Issue 2
Analysis of the World Experience of Public-Private Partnership Application
Nerses Agazaryan1
1 Peoples Friendship University of Russia, Moscow, Russian Federation
The article analyzes the international experience of PPP development as an example of economic developed, developing countries and countries with economies in transition. The work is aimed at identifying the world "s best practices in order to determine the most favorable conditions for the practical implementation of PPP approaches in Russia.
The article made a number of key findings that PPP in infrastructure sectors allows to attract funds for development and improvement of energetics, water supply, transport, telecommunications, information technologies and other areas due to the participation of private and public institutions to countries and regions. In places with regional problems concerning aging infrastructure and a need for more effective services, partnership with the private sector can contribute new solutions for the integrated development of the countries and regions.
public-private partnership, infrastructure, economic growth, competitiveness
Agazaryan, N.V. (2016). Analysis of the World Experience of Public-Private Partnership Application. Public-Private Partnership, 3(2), 151-172. doi:10.18334/ppp.3.2.37071
JEL: H54, L32, O57
© Agazaryan N.V. / Publication: Creative Economy Publishers This work is licensed under a Creative Commons BY-NC-ND 3.0
H For correspondence: [email protected]
The development of PPP in the world can be divided into three specific stages
The majority of countries are still at the first stage of PPP development, which includes the development of the legislative framework and standards for PPP
At the second stage are the vast majority of developed countries of Europe, such as Germany, France, Spain, Italy, and from the rest of the world - such countries as the USA, Canada, New Zealand, Japan and Russia
At the third stage of PPP development are only the UK, Australia, South Korea and Ireland
Recently, in some countries began to appear PPP projects in the areas that had previously been considered the exclusive domain of the state
Public-private partnership, 2016, Volume 3, Issue 2
Analysis of the world experience in the application of the mechanism of public-private partnership
Nerses Agazaryan1®
1 Peoples' Friendship University of Russia, Moscow, Russia
ANNOTATION_
The article analyzes the international experience in the development of PPP on the example of economically developed, developing countries, as well as countries with transition economy. The work is aimed at identifying the best world practices in order to determine the most favorable conditions for practical implementation PPP approaches in Russia.
The article made a number of key conclusions that PPP in infrastructure sectors allows countries and regions to raise funds for the development and improvement of energy, water supply, transport, telecommunications, information technology and other areas through the participation of private and public institutions. Where there are regional challenges with aging infrastructure or where more efficient services are required, partnerships with the private sector can help strengthen new solutions for the integrated development of countries and regions.
KEYWORDS_
public-private partnership, infrastructure, economic growth, competitiveness
FOR QUOTATION:_
Agazaryan N.V. Analysis of world experience in the application of the mechanism of public-private partnership // Public-private partnership. - 2016. - V. 3. - No. 2. - S. 151-172. - M: 10.18334/rrr.3.2.37071
JEL: H54, L32, O57 Publication language: Russian
© Agazaryan N.V. / Publication: Creative Economy Publishing House The article is distributed under the Creative Commons BY-NC-ND 3.0 license
n Contact: [email protected]
The development of PPP in the world can be divided into certain three stages
Most countries are still at the first stage of PPP development, which includes the development of a legal framework and standards for PPP
The vast majority of developed European countries, such as Germany, France, Spain, Italy, are at the second stage.
and from the rest of the world - such states as the USA, Canada, New Zealand, Japan and Russia
Only the UK, Australia, South Korea and Ireland are in the third stage of PPP development
Recently, in certain states, PPP projects have begun to appear in areas that were previously considered the exclusive prerogative of the state.
Agazaryan Nerses Vardanovich, post-graduate student, Peoples' Friendship University of Russia, Moscow ( [email protected])
In world practice, public-private partnership (PPP) tools are used to attract private companies for the purpose of long-term financing and management of public infrastructure for a wide range of PPP objects.
The choice of the initial direction in the implementation of PPP projects depends to a greater extent on the level of economic and social development and priority tasks of a certain state or region. A variety of forms, types and scopes of public-private partnerships integrate them into a universal tool for solving a certain kind of long-term tasks in a different context of areas of activity - from the use of only infrastructure and social projects at the national level to the adaptation and development of particularly promising technologies for the latest growth points precisely there where there is a capacious human capital and scientific potential.
The development of PPP in the world can be divided into certain three stages, which are presented in Table 1.
Table 1
Stages of development of public-private partnership
Degree of development of PPP Characteristic features
The first stage is the formation of the foundations of the PPP policy; - development of basic concepts; - the beginning of building a market for PPP services; - Identification of priority projects.
The second stage is the formation of PPP structures; - formation of a legal framework; - expansion of a number of projects with the inclusion of new sectors of the economy; - Publication and preparation of practical guides.
The third stage - PPP models are multiplied and improved; - legal barriers to the development of PPP have been eliminated; - there is a flow of concluded PPP contracts; - the range of infrastructure investors is expanding, including insurance, pension and private funds.
Most countries are still at the first stage of PPP development, which includes the development of a legal framework and standards for PPPs. Participants who are at these stages are rapidly trying to create a PPP system without a deep understanding of how to implement them, as a result of which they expose themselves and even their partners to a certain risk of repeating the mistakes that pass.
at the initial stage of PPP development in other states. In order to prevent such mistakes from being repeated, states that are at the initial stage of PPP development should use the experience gained by states that have already passed this path: Australia and Ireland in the field of road construction; Great Britain - in the construction of hospitals, educational institutions, as well as military infrastructure; The Netherlands - in the construction of municipal housing.
Today, only the United Kingdom, Australia, South Korea and Ireland are in the third stage of PPP development, which has only recently entered this third stage. The vast majority of the developed states of Europe, such as Germany, France, Spain, Italy, and from the rest of the world, such states as the USA, Canada, New Zealand, Japan and Russia are at the second stage. At the starting, the first stage of PPP development are the countries of Latin America, of Eastern Europe, as well as the CIS countries.
PPP is developing with varying degrees of success in many countries. This concept is most widespread in states with a developed market economy, as well as with well-established traditions of effective interaction between the private sector and the state. But, despite the similarity of common positions, there are certain differences in the organization of PPP in different states. For example, in the Anglo-Saxon world, there are three different competitions for choosing a private partner: for construction, for design and for management. In a state like France, on the contrary, there is a single competition for all types of services and works. The practice of using PPP in some Western European states indicates that this mechanism is used where business and the state have complementary interests, but at the same time they are not able to act independently of each other and completely independently.
Domestic scientist Balashov S.A., while researching the practice of foreign PPP projects, noticed that different countries have their own specific industry priorities: for example, in the United States such an industry is roads (89% of all projects), in the UK - healthcare (35% of all projects) and education (32% of all projects), in Germany - education (43% of all projects), and in countries such as Italy, France and Canada - healthcare1.
1 Balashov S. Experience in the functioning of PPP in developed countries // Public-private partnership in a crisis: Collection of conference materials. - Moscow, 2009. - S. 281.
Recently, in certain states, PPP projects have begun to appear in areas that were previously considered the exclusive prerogative of the state. Thus, in the USA, Great Britain and Germany, PPP schemes are being integrated, which allow combining the advantages of state planning with private interest in the implementation of nationwide projects in the field of space exploration.
In the current realities of the development of the world economy, there is a need to identify the most significant industries for the use of PPP for each state in general and the region in particular. It is practically impossible to attract investments in all spheres of the state economy at once, and at the same time, there are always those areas of activity in which it is necessary to invest in the first place. Also, the sectors in countries with different levels of economic development, in which, according to the government of the state, it is necessary to invest by attracting the private sector, differ significantly.
An analysis of foreign projects in countries with different economic development, which were implemented using public-private partnership mechanisms, showed that such partnerships are successfully used in transport (roads, ports and airports, railways, pipeline transport) and social infrastructure (education, healthcare, entertainment and tourism), housing and communal services (electricity supply, water supply, gas supply, water treatment, etc.), in other sectors (defense, prisons, military facilities). As shown in Figure 1, the leaders are transport infrastructure and social infrastructure.
When analyzing the application of PPP projects in various states, considering them in accordance with the classification adopted by the UN, depending on the economic and social development of the state, the overall picture will change. Figure 2 shows the scheme of application of PPP projects in the G7 countries (USA, Canada, Great Britain, France, Germany, Italy, Japan) by economic sectors. You can compare Figures 1 and 2, as a result of the comparison, we will notice that, compared with the overall picture in the G7 states, the projects are precisely transport infrastructure are far from being at the forefront. In the G7 countries, health care, education and roads occupy the first to third places (Table 2).
Water treatment plant ■■ 21
Waste management JNR 31
Utilities 1 4
Street lighting ■ 15
Social Housing 26
Highways
Railways H 17
Prison H 17
Light ground metro Sh 47
Leisure activities 1 4
Innovative technologies 1 4
healthcare
Education
Defense ■■ 21
Bridges and tunnels 21
Airports 1 4
Accommodation facilities 75
0 50 100 150 200 250
■ NUMBER OF PROJECTS, PCS
Figure 1. Industries in which PPP projects are used in the world Source: Compiled by the author based on
NUMBER OF PROJECTS, pcs
Water treatment facilities 32
Waste management 23
Utilities Street lighting 1 pa
Social housing 22
Highways 92
Railways Prisons Ports 3 2
Light rail 25 |
Leisure activities Innovative technologies 1 2
Health 184
Education ___ 138
Defense Bridges and tunnels 20 31
Accommodation facilities 51
Figure 2. Analysis of the use of PPP projects by industry in the G7 countries Source: Compiled by the author based on
ogeed m 01 8 cm co E8 ate - io CO
npnezhMooe yayanshopyoodo oh oh oh oh see
eodokhsho EPN1V90£Yai0iEI SG> o o o tg o SO SM
oeshzpvsoh oonchivnLtcho)! oh oh oh oh oh oh
opneytoo bottom o o o - se o yo
echipzh eonchivphoe sm sm o o o o o s? cm cm
pgo ^or achNeeieuk SM o h- -
¡Thu<]щ - о - го <о - о СП
1ЯШ(1o o o o o<=>cm o cm
oOshet eonmeeen eohgets SG> t- - sm o o u CM
erAeod unbespneg^o o o - o<=> <=> -
ppgoionhash ayannogysheonnm o o o a o cm
piannosh p ¡chsheouu o go so o yu o o
vnooodo CO o o - - o o o cm
CO - (G) -TG CO -
epneoEeeOdd GO o-o o o so so
epnenv0hoo&e0d£ GO cm o ■H" cm s cm s o 5
pgoOo sole cm cm co o o ho cm o cm SG?
I UK and 1 a: 1 | France Germany | Italy and about with Total
Such a distribution of sectors of the economy is not surprising, given the peculiarities of the economic and social development of this group of states. A more detailed study of foreign experience showed that each of the G7 states has its own specific and priority area for the use of PPP mechanisms. For example, in the United States such an area is roads, in the UK - health care and education, in Germany - education, in Italy, France and Canada - health care.
When studying the experience of individual states of this category, close attention should be paid to the UK, since over a long period of time it is this state that has been considered the undisputed leader in the application of PPP mechanisms, which is confirmed by the distribution of projects among the G7 states (Figure 3).
■ UK
■ USA _ France
■ Italy
■ Japan _ Canada
Germany
Figure 3. Completed PPP projects in the G7 countries
In the UK, public-private partnerships have been booming since the launch of the Private Finance Initiative in 1992, but the idea of raising private capital to finance projects of public interest, which are usually funded by municipal or public funds, was born around the beginning of the 1980s.
The British government is actively using in practice the concept of interaction and partnership between private business and the state in the form of PPP - to attract private investment in the development of infrastructure and the provision of services, which entails a reduction in the financial burden on the state budget.
PPP is applied in cases where private companies can perform government tasks as well, and sometimes even better, than the state itself. This efficiency gain is achieved by:
Competent distribution of risks and tasks;
Applications of the life cycle principle;
Improvements to incentive tools.
In the UK, the concept of PPP is practically implemented in most cases in the form of PFI. It arose as a result of many years of searching by the British government for ways to improve the quality of public services while reducing government spending for these purposes.
The most specific features of the PFI program are as follows: the projects themselves are considered from the standpoint of how their implementation will help increase the quality of life of the population, and not from the standpoint of the acquisition of new assets by the state; the private sector assumes certain long-term obligations to maintain an asset or provide a service, and the state assumes a long-term obligation to meet the demand for these goods or services. Also, the private sector assumes a significant part of the project risks. The main criterion that is used when deciding on the implementation of a PPP project is the evaluation of the value for money ratio.
The UK remains the European leader not only in terms of the scale of the use of PPP schemes to attract investment, but also in terms of the degree of diversification of various areas of application of such investments in the economy as a whole. In modern conditions, British business is endowed with a wide range of practical experience in participating in PPP contracts, including financial and legal issues, and aspects of managing such projects.
After considering the UK experience, it is more logical to move on to the US experience. First, it should be noted that in the United States there is no federal law that would establish uniform approaches
to the use of public-private partnership projects. An analysis of the US legal framework indicates the presence in many states of existing legal documents that regulate certain areas (by industry) of using PPP mechanisms.
The main institution responsible for the development of public-private partnerships in the United States is the National Council for Public-Private Partnerships (NCPPP), formed in 2005. The Council is non-profit organization and is part of the government of the State of Colombia, whose mission is to promote and promote the PPP system at all levels of government in those areas where it is really needed, as well as to create a basis for business cooperation between the private and public sectors of the US economy in order to improve the quality of services and goods on the basis of effective management of expenditures in socially significant areas for the population of the state.
As defined by the National PPP Council in the United States, a public-private partnership is a form of agreement between any level of government (municipal, state, federal) and a representative of the private sector. The agreement provides for the sharing of the assets and experience of each of the parties in order to create products or provide services that are necessary for the population of the country. In addition to the distribution of resources, the terms of the contracts provide for the distribution of income and risks for the project between the state and private business.
The National PPP Council solves certain tasks:
Promotes information exchange between private business and the state in terms of the practical implementation of PPP projects;
Conducts educational trainings and seminars on PPP;
Provides general information to promote the use of PPP tools;
Provides methodological support in the process of preparation and implementation of international PPP projects.
There are two types of participation of private business representatives in the National PPP Council:
1. Main participation. Participants of this type can be enterprises of various industries and organizational and legal forms. This category of participants does not have the right to vote in making management decisions. This form of membership allows you to submit your own initiatives for the development of public-private partnerships for the final decision of the board of directors.
2. Sponsorship. Participants of this type can be representatives of private business, non-profit public organizations and other enterprises that are ready to pay membership fees. Sponsor members are eligible to be members of the Board of Directors of the Board.
By virtue of the above, we conclude: in those states that are characterized by the presence of precisely market economy, high consumption of GDP per capita and the level of labor productivity, where the average life expectancy is high and the naturally high quality of education and medical care, where the country guarantees a high level of social protection of the population, PPP is used mainly in education and healthcare, which is associated with the state policy pursued in the country.
Having studied the experience of using PPP in the G7 countries, one cannot but consider the experience of other developed countries.
Table 3 reflects a completely different structure of the distribution of PPPs by economic sectors in this group of countries, namely, the predominance of the road sector is noticeable. The leading areas of use of PPP mechanisms for these states are:
1. roads (93 projects);
2. healthcare (29 projects);
3. education (23 projects);
4. accommodation facilities (22 projects).
In the G7 countries, health care is in first place, education is in second place, and roads are only third in terms of the degree of use of PPP mechanisms. In other developed countries, the situation is as follows: roads are in first place by a wide margin, and education and healthcare are in second and third places.
ogeod ¿N1 CO SM co o I1-chg yu o -g - th cm cm SP co SM
tspnjaA (1ooo emnshapyoodod - O CM sm o o - o o a - o o o o o g-
eodohsho epneoyuioiei o o - o o o o o o o o o - g-
oeshepieoh neotivnHtu)! SM ^ o o o o o o o o o o o o o o
epne "teeeo eonpid o O o o o o o o o o o o o o o
eyapzh eonchiepUyo - go o s=> o o o o o o o<=>o o o h
pg<х1од &ян£д1Ю)1{ о - о о СМ г*} о о о о о о - а ч
see - o o o o o o o - o o o o o
yushvoioeee p yashbots sm o o so o o o o o o o o o o o o o o o o
eonteen eoheets - o o so SM - o o o s o a o o o o SP
eAeor unBeepned(1() - o o o o o o o o o o SE - SM
ppgononhash e19nnpjeeonny o o o o o o o o o o o o o sm
PNENNOSH P 1CHSHE01<Ч о о о о - о о о о о о о о - о со
enoOodo - ee o o o o o o o o o o o -
ypne "teme & o eishref<£>GO t- cm - - - - - tG o o - o o cm cm
epneeeeeOdo SO h- - - o o o se - o - - o - o s sch]
epneneihoo&eir£ W o S%1 - t co - o - o - o o o o o cm
pgo<к>ooshey s ^ o S "^ o tr g". go - so co - o o o co sgz
HS £ 1 ts a 1 Northern Ireland Spain ss § 1_ e-o. o gg o; § I o. 2 F B ||_ th 1 Austria | Israel l s a 1 X k E 1 o 1s | Finland | Denmark | South Korea Singapore | Total
In view of the foregoing, it can be concluded that there is a certain correlation between the level of economic and social development of the state and the areas of application of PPP mechanisms. But on the other hand, statistics indicate that the top three sectors of the economy in both groups of countries are identical, only the order of their distribution by the number of implemented projects differs.
If we consider the experience of partnership between the state and the private sector in individual countries of this group, then the experience of Australia seems to be the most interesting.
In Australia, the rapid development of PPP took place in the 80s of the twentieth century: then the authorities began to use this mechanism to attract private capital in infrastructure projects and civil engineering. Currently, this scheme is used in other projects, such as the construction of hospitals, courts, conference centers.
Such projects are carried out on the principle of equity financing from the state, regional or local budget, combined with the attraction of private capital. It also provides for the possibility of issuing government debt securities. At the same time, the obligations of the state to the participants in the partnership are established individually in each project, and the selection of partners is carried out in the format of competitions.
In 2008, the federal government released the Comprehensive General Guidelines for PPPs, which contains a comprehensive list of guidelines that governments should follow when operating under PPPs. In addition, the entire process is regulated by the relevant norms of legislation that have an imperative character.
One of the important features of the implementation of PPP in Australia is full transparency and publicity. In accordance with the reporting requirements, open access to the project balance sheet is provided. For example, full information on the $2.56 billion East Link highway construction project is publicly available on the Internet. This approach helps to avoid violations of overestimating project financing, providing unreasonable preferences to individual companies already at the project preparation stage.
and unfair distribution of responsibility among the participants.
A distinctive feature of developed countries is their progressive vision of the factors that determine the effectiveness of PPPs. Numerous studies of the problem of the effectiveness of public-private partnerships are being carried out. Within the EU, research is carried out in the form of developing specialized valuation standards: the previously used concept of strict optimization (for example, maximizing profitability, net present value, etc.) is transformed into a broader multivariate generalized analysis of the value of the partnership (Value for Money).
Let's move on to the study of the next group of countries - countries with economies in transition. Table 4 analyzes the use of PPP projects in countries with economies in transition, and from this analysis it can be seen that infrastructure projects such as airports, roads, tunnels and bridges, and light rail are leading by a significant margin. It is worth noting that, as was the case in the previous groups of countries we examined, education and healthcare are no longer priority areas for the use of PPP tools, primarily due to significantly lower GDP per capita and the priority of economic growth in relation to the development of the social sphere. In view of the foregoing, in order to maintain and maintain high rates of economic growth in these states, it is extremely important to implement a set of measures to develop specifically the transport infrastructure.
The last group of countries we will consider are the developing countries. Table 5 analyzes the use of PPP projects in developing countries.
In developing countries, as well as in countries with economies in transition, the largest number of PPP projects are also carried out in the road sector.
Judging by the above statistics, Russia, which belongs to the category of countries with economies in transition, is highly likely to focus on the construction of transport facilities, since it is in this area that the greatest disproportions are observed and there is an increased demand for better transport infrastructure.
ogeod L sch - 1- t
tspnvzhAFhyu etnshepyoodod o o o o o o o o
eodohsho epnvdoeyaioiei o o o o o o o
oeshepieoh eonyaiEnAmt)( o o o o o o o
epne)le8eo vomshch o o o o o o o
echipj eonchi&poo o o o o o o o o
lalor e>chn£ee)ko o o o o o o o
see o o o o o a
1yii]oio<]ее п ¡чинЬц о о - о см о о о сг>
snZyup wonm&evn eomgei - o - o o o o o sm
erAeod t leEnneg (1o - o o o o o -
ppgoionhash e1chnopShdonny o o o o o o o o
piannosh tchsheowu s o o o s o o s s o o s
enos/odo o o o o o o o o o
oh oh - oh oh oh oh -
epneeeeeOdo - o o o s? o s? -
o sm o o o o o o P1
pgoooyieu ■o yu TG yu cm O - - with cm
(G - & X a> k X l 2 0i RZ § c Croatia | Bulgaria Latvia JV X - sv & > Czech Republic Total
to £ and >-, o. her
ogeod o> - - l - co - - MF1 cm
tnezhAbooe achniyupyudod o o o - o - o o see
eodohsho epnveoyaioiei o o - o o o o o -
oeshepieoh eonyaienAtcho)! oh oh oh oh oh oh oh
epne)le8eo eonpvd o o o o o o o
Echipj Eonchi&puyuo o o o o o o o o
sand^or &yaneeee)k o o o o o<=>about - -
¡yat o o L - o o - o See
mihknhhsee p ¡chshtsots o - o o o - o a cm
oyoshvn eonp&een EOH2EC o o o o o - o o -
erAeod nl^eeshegsLo o o o o o s?
ppgoionhash E1chnop)1e9onnie o o o o o o o
piannosh p)chsheouu o o o ■ o ■ o o o ee
enoyoodo<Г>o o ■o ■o o o o
Ipnebmeee o o o o - o o o -
epnesheOdo - o o o o o o o -
epnvnvs^hooee^ds - o o o ■s? ■o o o -
pgo^odoshow g- o o so o o o o
I Mexico | India | Brazil | Chile | Malta | UAE | Hong Kong | Saudi Arabia | Total
For Russia, the experience of the BRICS countries is of great importance. In the BRICS countries, the development of public-private partnerships also has its own characteristics. Concession and other PPP schemes are most productively applied in India, Brazil and China. In most cases, these are projects in the agricultural and manufacturing sectors, in the development of raw materials deposits, projects of public utilities infrastructure, and now the Russian Federation is planning joint PPP projects with Brazil. Thus, the PPP Development Center and The State Economic Development Secretariat / PPP Unit of the Brazilian state of Minas Gerais in 2014 entered into a cooperation agreement, according to which the main areas of cooperation between states will be the exchange of information and experience in the field of PPP, providing business projects with a certain level of organizational support, "cross" study of investment projects using PPP tools.
In China, the first stage of the formation of public-private partnership began from the 1980s to the 1990s and its characteristic feature was high degree state participation in the formation of project management tools. The mass implementation of PPP projects contributed to the inflow foreign investment, improving the development of infrastructure in the state, alleviating the financial burden of the state budget. Since the early 1990s, the legal framework for PPPs has begun to develop. The second wave of PPPs began in the 2000s with a resurgence in financing large infrastructure projects and the economic development of the state. Under the auspices of the United Nations Development Program (UNDP), Beijing supported the inclusion of a public-private partnership scheme in the ongoing United Nations Development Program 21 (UN Agenda 21, ACCA21) in China.
In the Republic of South Africa (South Africa), when evaluating business projects, the main factors of compliance with the stated goals of PPPs are the possibility of their implementation by affordable means, economical effect and risk sharing with the private sector. In 2001, taking into account all the accumulated experience and with the financial and technical support of the state funds for international development of the United States (USAID), Germany (DTZ) and Great Britain (DIFID), a head body was created under the National Treasury of the Ministry of Finance of South Africa, and the functions were transferred to its competence technical advice and general financial supervision
within the PPP. The functioning of the established PPP Department (PPPP) is financed only from the budget of the Treasury. On behalf of the state, the PPP considers economic justifications for projects, conducts and organizes public tenders, followed by the signing of contracts, and also performs a control function, supervising the fulfillment by the parties of all their obligations. In his practical activities The Office works closely with other agencies in South Africa, municipalities(for example, on the development of electrification, sewerage and water supply systems,) and the authorities of the South African provinces.
Considering the Brazilian experience, it should be noted that Brazil has long had a law on concessions, based on which private business can manage and build infrastructure facilities with the permission of the state. The document also allows the public party to offer a unitary payment to the private partner in cases where the project is not economically sustainable enough. The regulatory framework in Brazil is designed in such a way that the state should provide its services in infrastructure development only when there is a need or there are no other alternatives. In 1995, the National Privatization Program also became part of legal basis to develop private sector participation in the Brazilian economy.
But in India in 2012, through the use of PPP mechanisms, the authorities tested the concession agreement tool to solve important issue lack of capacity to store serious volumes of grain. India is also one of the most profitable medical tourism markets in the world. The Ministry of Tourism of India is trying to use the potential of PPP in India's traditional health systems (such as Ayurveda, Yoga, Siddha). In order to provide better quality healthcare services, the Government of India has used new model public-private partnership aimed at improving the healthcare infrastructure through private support of the public sector of the medical industry.
PPP in infrastructure sectors allows countries and regions to raise funds for the development and improvement of energy, water supply, transport, telecommunications, information
technologies and other areas through the participation of private and public institutions. Where there are regional challenges with aging infrastructure or where more efficient services are needed, partnerships with the private sector can help to strengthen new solutions for integrated regional development.
SOURCES:
1. Vashalomidze E.V. Development of public-private partnership in the conditions
innovation modernization of the economy // Internet journal "Naukovedenie". -2014. - No. 6.
2. Gafurova G.T. India's experience in supporting and developing public-private
partnerships // Actual problems economics and law. - 2013. - No. 3. - S. 52-57.
3. Glushkov S.A., Uvarova A.A. World experience and prospects for the use of PPP in Russia //
Transport of the Russian Federation. - 2012. - No. 3.
4. Zavyalova E.B. Public-private partnership in foreign economic
activities // Russian Foreign Economic Bulletin. - 2013. - No. 2. -S. 52-61.
5. Zakharov A.N., Ovakimyan M.S. The use of foreign experience of state-
private partnership in solving economic tasks Russia // Russian Foreign Economic Bulletin. - 2013. - No. 6.
6. Merzlov I.Yu. international experience development of public-private partnership in
economically developed countries: institutional aspect // Bulletin of the Perm University. Series: Economy. - 2012. - No. 3. - S. 75-81.
7. Kuzmin V.A. Public-Private Partnership: Experience in Implementing the Mechanism in
Germany and the possibility of its use in Russia [ Electronic resource] // PPPinrussia.ru. - 2014. - Access mode: http://www.pppinrussia.ru/userfiles
8. Sadykhov A.P. Information and analytical report on the experience of PPP in the South
African Republic [Electronic resource] // PPPinrussia.ru. - 2015. - Access mode: http://www.pppinrussia.ru/userfiles
9. Sadykhov A.P. Information and analytical brief on the experience of PPP in Brazil
[Electronic resource] // PPPinrussia.ru. - 2015. - Access mode: http://www.pppinrussia.ru/main/publications/foreign
10. Petrova I.V. The concept of public-private partnership: assessment of foreign and
domestic definitions // Bulletin economics Ukraine. - 2014. - No. 3.
11. Petrova I.V., Tarash L.I. World and European trends in the development of PPP in
determining priority areas of application // Bulletin of Economic Science of Ukraine. - 2015. - No. 1.
public-private partnership in the subjects of the Russian Federation / M.V. Tkachenko, A.A. Dolgov,
G.A. Borshchevsky [i dr.]. - M.: Center for the Development of Public-Private Partnerships, 2014.
13. Khachaturyan N.S. World experience in the formation of effective mechanisms
interaction between the state and business in modern conditions // Terra Economicus. - 2013. - T. 11. - No. 1-3. - S. 14-18.
14. Official website of the US National PPP Council (http://ncppp.org).
15. Official website of the National PPP Development Finance Agency of Ireland
(http://ppp.gov.ie).
16. Official website of UK PPP Development Center (PUK)
(http://www.partnershipsuk.org.uk).
17. Official website of the PPP Development Center of Portugal (http://www.parpublica.pt).
18. Official website of the PPP Development Center of France (http://www.cefoppp.org).
19. Official website of the Federal information portal "PPP info"
infrastructure and PPP in Russia (http://www.pppi.ru).
Introduction
Chapter 1 Theoretical Foundations of Public-Private Partnership Analysis
1.1 The concept, emergence and structure of public-private partnership. Conceptual framework for partnership between the state and the private sector
1.2 Main models and forms of partnership
Chapter 2. Development of public-private partnership in the global and Russian economy
2.1International experience of interaction between the state and private business
2.2 The practice of introducing public-private partnerships in Russia: results and development problems
At present, in the economies of a number of developed and developing countries, a new special form of interaction between the state and private business, the public-private partnership, is becoming widespread. Public-private partnership is an organizational and institutional association of the state and private business in order to implement socially significant projects throughout the country or individual territories. Significant changes are taking place in the forms and methods of managing the production and social infrastructure, traditionally state property: utility and energy networks, sea and river ports, airports; healthcare, education, law enforcement and military fields.
These changes characterize the weakening of the direct influence of the state in the economy and the parallel strengthening of its state regulation in various forms. The reason for this behavior is the dissatisfaction of the state with the work of public services for the provision and maintenance of society. The consequence of this is a partnership between the state and the private sector.
Nevertheless, such changes and strategies create particular uncertainty, and the study and analysis of public-private partnerships is relevant and of scientific interest. This topic was considered and analyzed in the works of various authors, in particular V.B. Varnavsky, O. Williamson, D. Grimsey, S.A. Karpov, M. Lewis, P. Rosenau.
The purpose of the work is to analyze public-private partnerships at the international and Russian markets.
The goal set defines the following tasks:
To identify the theoretical foundations of the analysis of public-private partnership and the features of this concept;
Consider the main models and forms of public-private partnership;
Conduct an analysis of the interaction between the state and private business in the international and Russian markets;
To identify the existing difficulties in the development of public-private partnerships and analyze the trend in the development of a new economic relations in the Russian economy.
It should be noted that general theoretical aspects are covered in systematic courses on microeconomics. The methodological and theoretical basis of the study was made up of several groups of sources. The first one belongs study guides: "50 Lectures on Microeconomics" ed. M.N. Gryaznova, N.L. Yudanova, “State and business: basics of interaction” Shamkhalov F., “Economics. Introductory course "Samuelson P.A.; Modern Economic Dictionary (Raizberg B.A.).
The second includes scientific articles by M. Hayrapetyan, D. Amunts, V. Varnavsky, M. Deryabina, O. Zhilina, A. Filatov, in periodicals: “Auditor”, “Economic Issues”, “ World economy and international relationships”, “Problems of theory and practice of management”, “Russian entrepreneurship”, “Russian Federation today”, “Modern Europe”.
1.1 The concept, emergence and structure of public-private partnership. Conceptual framework for partnership between the state and the private sector
The economies of a number of developed and, more recently, developing countries are widely using a new special form of interaction between the state and private business. This particular form of partnership is usually referred to as PublicPrivatePartnership (PPP). In Russian literature, the term public-private partnership is used, based on a clear definition of the leading role of the state in Russian realities.
This form is based on the weakening of the direct influence of the state in the economy, the transfer of functional powers to the private sector and the simultaneous preservation and strengthening of its regulation. The state is a kind of agency for the implementation of socially significant goods and services. It can produce some parts of these goods on its own, and the rest by attracting the capabilities and abilities of the private sector. Business, as it were, is invited to the management of state assets for the improvement and high-quality implementation of state projects.
Public-private partnership is this form of activity of the state and the private sector, with the aim of developing the most significant infrastructure facilities and providing quality services to business entities and society.
"Public-private partnership is a specific, various form of interaction between the state and the private sector in the economy, the fundamental feature of which is the balance of interests, rights and obligations of the parties in the process of its implementation."
Actually the term "public-private partnership" (PPP, PublicPrivatePartnership) appeared in the early 90s. 20th century And it is connected mainly with the “British model” of PPP. In 1992, the government of D. Major announced a "private financial initiative" (Private Finance Initiative - PFI), which was a modernized concept of public property management. The essence of PFI was to transfer to the private sector the functions of financing (construction, reconstruction, operation, management, etc.) of public-owned social, cultural and industrial infrastructure facilities within the framework of contracts and agreements on public-private partnerships. This fundamental change in the system government controlled in the UK led to a significant transformation in the institutional environment, as well as in the relationship between the state apparatus and private business.
Taking into account the intensive development of various forms of PPP in all regions of the world, application in various sectors of the economy, this form of interaction can be interpreted as feature modern mixed economy.
Let me remind you that a mixed economy is an economy with elements of a market and a command form of government. This is some kind of alternative form of government. There has never been a 100% market economy, although England in the 19th century was close to such a system. Currently in the United States, a significant part of the decisions are made by the market. However, the role of the government of the country does not fade away from this, on the contrary, the state plays an important role in the operation of the market: decrees and regulations are issued that regulate economic environment, provides health, education and law enforcement services, controls business and environmental pollution.
Consider the concept of PPP according to the analysis of V. Varnavsky:
1. It is worth emphasizing the indicated point that PPP is a semi-privatization form, i.e. the state, transferring the right to dispose of infrastructure facilities to the private sector, remains the owner of these facilities;
2. The state unilaterally performs its fundamental functions of life support for the population and enterprises, remains responsible to society for the functioning of infrastructures;
3. To ensure an appropriate level of services, a certain system of control and regulation is created for private enterprises;
4. The interaction of the parties in PPP is fixed on an official, legal basis (agreements, contracts, contracts, etc.);
5. In the process of implementing PPP projects, the existing assets of the parties
(resources and contributions) pooled;
6. All risks in PPP projects, are divided between the state and business in proportions, according to mutual agreements, fixed in the relevant agreements, contracts, contracts, etc.
Each project participant contributes to the development of a common project. For example, a business provides financial resources, professional experience, flexibility, quick adaptation and efficiency in decision-making, shows effective management, innovative ability. At the same time, the so-called "know-how" in technologies and methods of management in the implementation of projects is being introduced, and relationships are being established with suppliers and contractors, which increases the demand for highly qualified workers in the labor market.
The state, on the other hand, ensures the rights of ownership, provides all kinds of benefits and guarantees, as well as financial resources. With PPP, the state develops its main functions - control, regulation, observance of public interests.
The interest of business is due to the interest in maximizing profits from the implementation of projects, because having economic freedom in projects provided by the state, the private sector seeks to increase labor productivity and innovation. Secondly, business, in case of an unsuccessful set of circumstances during the implementation of the project, receives sufficient guarantees for the return of invested funds in the implementation of the project, since the state bears certain risks (according to the agreements of the parties). In some cases, with high-quality service, the state pays extra to its partner. And finally, the private sector receives state assets for long-term management for preferential terms fees.
The world experience of the last two decades in the field of practical implementation of public-private partnership (PPP) at the levels of national economies has confirmed the fact that the approach under consideration is one of the most effective tools for attracting investment in capital-intensive infrastructure projects. In addition, it is objectively clear that for the systematic development of this area, it is necessary to have an appropriate legislative framework. It is also extremely important to create a special institution whose main task should be to systematize the principles of PPP and organize practical work both at the federal and regional levels. The United Nations (UN) Commission on Social and Economic Development notes that in various countries of the world today there are 51 PPP development institutions, 24 of them in Europe, 2 in North America, 5 in South America, 7 in Africa , 13 - in Asia. In addition, there are 9 international organizations whose competence, along with other functions, includes the development of PPP (for example, the UN, EBRD, International Finance Corporation, etc.).
Let us consider the most typical examples of developed economic powers, the generalization of the experience of which will ensure the formation of an institutional basis for creating the prerequisites for the effective development of PPP in our country.
Great Britain. The first attempts to attract private capital to the implementation of investment projects initiated by the state date back to the early 1980s. 20th century These measures were carried out by the Thatcher government in order to reduce the influence of the public sector on the country's economy. In fact, the situation began to change in 1992, when the target program "Private Finance Initiative" (PFI) began to be implemented in the country, designed to stimulate more active participation of the private sector in government projects.
Currently, PFI has become part of the overall government program for the development of PPPs in the UK, which includes privatization processes and any other form of joint activity between the state and the private sector, including the provision of guarantees. At the same time, the most specific features of the PFI program are the following: first of all, PFI projects are considered from the standpoint of how their implementation will improve the quality of life of the population, and not from the standpoint of the acquisition of new assets by the state; a private party assumes a long-term obligation to maintain an asset or provide a service; the government, in turn, assumes long-term obligations to meet the demand for relevant products or services; a significant part of the project risks is assumed by the private party; the main criterion used when deciding to initiate a PPP project is the value for money (VFM) assessment. At the same time, VFM evaluation is understood as a system of criteria related to the economy, performance and efficiency of a service, product or process, for example, comparing the cost of costs and the value of results, quantitative and qualitative assessment of methods for involving, using and managing resources.
Ireland. The interaction between the private sector and the state in Ireland began with the establishment of hospitals and schools with the participation of religious organizations and the management of toll roads. The decision to develop PPP on a systematic basis was made in early 1998, which was facilitated by a huge deficit in financing infrastructure projects. The combined efforts of the Irish Union of Employers and Workers, the Builders' Federation and the National Socio-Economic Council contributed to the fact that in December 1999 the National Development Plan 2000-2006 was adopted, which formalized PPP as one of the ways to develop national economy. At the same time, PPP is defined as an agreement between the public and private sectors, which fixes a clear distribution of risks between participants and gives the right to the private party to provide socially significant services using public infrastructure, on principles different from standard public procurement. At the initial stage, the steps to implement PPP in practice were extremely balanced and cautious. In June 1999, the government announced that the program would begin with eight basic school-related pilot projects, public transport, roads and recycling. Nevertheless, the National Development Plan included rather large-scale tasks for increasing investment in PPP projects, which was reflected in government reports.
So, out of 17.6 billion Irish pounds invested in 2000-2006. in infrastructure development, 1.85 billion was spent on projects implemented in the form of PPPs.
Three factors contributed to the rise in importance of PPPs:
1. An opportunity was provided for quick entry into PPP projects of interested parties. It is especially important that the government ensured the absolute transparency of projects for the private side in terms of obtaining any information about the projects proposed for implementation.
2. The ongoing process of improving the situation in the field of budgetary financing has allowed the government to pay more attention to the macroeconomic, social and other positive effects of PPP projects in comparison with tax revenues.
3. Despite a number of institutional difficulties that appeared during the implementation of pilot projects, it was initially decided that it was necessary to complete each project being implemented, which ultimately contributed to the successful implementation of PPP approaches.
France. On June 17, 2004, the President of France signed Order No. 2004-559 "On PPP Contracts", which defined the basic approaches to organizing PPP projects in the country. In particular, a definition was given to the PPP contract: it is a civil law contract, according to which the state or a company representing the interests of the state instructs a third party during the investment period or the period established by the terms of financing, complex work on the project related to construction, redevelopment repair, maintenance or management of property, plant and equipment or intangible assets. At the same time, the project must have a high social significance. The entry into force of this order led to the fact that the Ministry of Finance initiated the creation of a French PPP development center (Mission d "Appui aux PPP (MAPPP)) (MAPPP), which was officially opened in May 2005. The main goal of MAPPP is to assist the executive bodies of the state authorities (initiators of PPP projects) in the preparation and implementation of PPP projects throughout France.The PPP Center was established as a structural unit of the Ministry of Finance, it employs six people.All decisions made by the center and related to the rules of operation are agreed with the ministry.
The main functions of MAPPP are as follows: development of a methodology for public procurement and evaluation of PPP projects; checking the completeness of documents for compliance of the PPP project under consideration with legal, financial and quality requirements (including according to the VFM criterion); verification of the reliability and correctness of the submitted feasibility study of the project; assistance in choosing private consultants; conducting a comprehensive assessment of the project before its final approval by the Ministry of Finance. In addition, the center develops methodological materials in order to provide consulting assistance to relevant ministries and departments in the process of PPP development. The Center publishes newsletters and participates in various conferences and other events aimed at expanding the scope of PPP and sharing experience between participants. At the same time, the center does not have the authority to independently implement PPP projects, does not conduct tenders and any other activities related to the public procurement process.
Financing of the current activities of MAPPP is carried out exclusively under the relevant item of the state budget. Accordingly, MAPPP is not entitled to receive remuneration from relevant ministries and departments (initiators of PPP projects). Projects at the regional and local levels can be implemented without the involvement of MAPPP.
USA. In the United States, there is no federal law that establishes uniform approaches to the implementation of PPP projects. At the same time, the analysis of legislation shows that in the vast majority of states there are existing legal documents regulating specific areas (by industry) of applying PPP approaches.
The main institution responsible for the development of PPPs in the country is The National Council for Public-Private Partnerships (NCPPP), which was formed in 2005. The Council is a non-profit organization within the government of the state of Colombia, whose mission is to promote and promoting PPP approaches at all levels of government in those areas where necessary, as well as creating prerequisites for business cooperation between the state and the private sector in order to improve the quality of goods and services based on effective cost management in socially significant areas for the country's population. The Council defines a PPP as follows: it is a form of agreement between any level of government (federal, state or municipal) and a private business. The terms of this agreement provide for the sharing of the experience and assets of each of the parties in order to create products or provide services necessary for society as a whole. In addition to the distribution of resources, the terms of the agreement provide for the distribution of risks and income for the project between the parties involved. NCPPP solves the following tasks:
Carries out general information in order to popularize PPP approaches.
Promotes information exchange between the state and private partners in terms of the practical implementation of PPP approaches.
Conducts training seminars and trainings on PPP.
Provides methodological support during the preparation and implementation of international PPP projects, including the analysis of the legal and regulatory framework related to PPP.
Public-private partnership - legally formalized for a certain period and based on the pooling of resources, the distribution of risks, cooperation between a public partner, on the one hand, and a private partner, on the other hand, carried out on the basis of a public-private partnership agreement, in order to attract private partners to the economy investments, ensuring the availability and improving the quality of goods, works, services, the provision of which to consumers is due to the powers of state authorities and local governments.
The use of public-private partnership (PPP) mechanisms is currently becoming widespread in the Russian Federation.
PPP includes a number of forms of cooperation that allow the state and the private sector to reap mutual benefits.
PPP refers to innovative methods used by the public sector to contract with the private sector, using its capital and managerial capacity to implement projects in accordance with the established time frame and budget. The public sector remains responsible for providing these services to the population in a beneficial way and has a positive impact on economic development and improving the quality of life of the population.
PPP is considered as specific projects implemented jointly by state bodies and private companies at federal, regional and municipal property.
The Ministry of Economic Development of Russia signed an agreement with CJSC TRANSPROJECT Group on cooperation in the field of PPP
Ministry of Economic Development of the Russian Federation represented by the Minister of Economic Development of the Russian Federation A.V. Ulyukaev and CJSC TRANSPROJECT Group represented by the Chairman of the Board of Directors V.V. Maksimova, on January 30, 2015, signed an agreement on cooperation in the field of export of engineering and consulting services for the preparation and support of investment projects implemented on the basis of a public-private partnership (PPP) mechanism to the CIS countries.
Within the framework of the agreement, the Ministry of Economic Development of Russia and CJSC TRANSPROJECT Group plan to exchange information necessary for the preparation and holding of joint events, as well as provide mutual expert, consulting and organizational assistance in the implementation of foreign economic projects of CJSC TRANSPROJECT Group, including those aimed at expanding export of products, services and objects of intellectual property and attraction of investments and technologies in Russian Federation.
For the same purposes, the Ministry of Economic Development of the Russian Federation will provide assistance in the implementation of activities of CJSC TRANSPROJECT Group within the framework of the relevant intergovernmental commissions on trade, economic, scientific and technical cooperation between the Russian Federation and foreign states.
The conclusion of an agreement on cooperation with the Ministry of Economic Development of Russia is an effective support for the active export activities of the TRANSPROJECT Engineering and Consulting Group (TRANSPROJECT Group) and its management company, CJSC TRANSPROJECT Group, in the markets of the CIS countries. TRANSPROEKT Group, as a consultant to state and municipal authorities (OSMU), over the past 10 years has successfully prepared and implemented dozens of major infrastructure projects in Russia and the CIS countries with a total volume of public and private investments of more than 1.7 trillion rubles, proving in practice the effectiveness and efficiency various models of partnership between the state and business.
Representatives of TRANSPROJECT Group have repeatedly been involved as expert practitioners to improve federal and regional legislation on public-private partnerships and concession agreements in the Russian Federation, the Republic of Kazakhstan, the Republic of Belarus and the Republic of Moldova.
In 2014, TRANSPROJECT Group, commissioned by the European Union and the United Nations Development Program, acted as the National Consultant of the Government and the National Assembly of the Republic of Belarus on training in the field of public-private partnership.
Public-private partnership (PPP) is a set of forms of medium- and long-term interaction between the state and business to solve socially significant tasks on mutually beneficial terms.
Story
The interaction of the state and the private sector to solve socially significant problems has a long history, including in Russia. However, the most relevant PPP has become in recent decades. On the one hand, the complication of socio-economic life makes it difficult for the state to perform socially significant functions. On the other hand, business is interested in new objects for investment. PPP is an alternative to the privatization of vital, strategic state property.
The most significant experience of public-private partnerships has been developed in the UK.
The concept of public-private partnership
Among experts, there is no consensus on what forms of interaction between government and business can be attributed to PPP. A broad interpretation means that PPP is a constructive interaction between government and business not only in the economy, but also in politics, culture, science, etc.
Among the basic features of public-private partnerships in a narrow (economic) interpretation are the following:
the parties to the PPP are the state and private business;
the interaction of the parties is fixed on an official, legal basis;
the interaction of the parties is equal;
PPP has a clearly defined public, public orientation;
in the process of implementing projects based on PPP, resources and contributions of the parties are consolidated, pooled;
financial risks and costs, as well as the results achieved, are distributed between the parties in predetermined proportions.
As a rule, PPP assumes that it is not the state that is involved in business projects, but, on the contrary, the state invites business to take part in the implementation of socially significant projects.
Forms of public-private partnership
In a broad sense, the main forms of PPP in the field of economy and public administration include:
any mutually beneficial forms of interaction between the state and business;
government contracts;
lease relations;
financial lease (leasing);
public-private enterprises;
production sharing agreements (PSAs);
concession agreements.
In Russia in 2004, seven main types of concession agreements were considered. However, in connection with the inclusion in a number of international treaties of the Russian Federation of certain provisions from the documents of the International Bank for Reconstruction and Development (World Bank) and preparations for accession to the WTO in Russian legislation other terms were included that characterize other types of concession agreements.
For 2012, Russian law provided for the following 3 forms (types of contracts) of PPP:
Management contract and lease agreements;
Contract for operation and maintenance;
Concession.
Areas of application of public-private partnership
The main area of application of PPP in the world is the construction of highways. Among the rest, the largest share is occupied by projects in housing and communal services. Since the 1990s, projects in the field of water supply and wastewater treatment have been operating in Russia.
Public-private partnership in Russia
In Russia, the concept of PPP for the first time in the legislation appeared in the Law of St. Petersburg dated December 25, 2006 No. 627-100 “On the participation of St. Petersburg in public-private partnerships”. To date, such laws have been adopted in 69 constituent entities of the Russian Federation, but most of them are declarative documents. In addition to regional acts, the scope of PPP is also regulated by the Federal Law of July 21, 2005 No. 115-FZ “On Concession Agreements” and the federal law dated 05.04.2013 No. 44-FZ "On the contract system in the field of procurement of goods, works, services to meet state and municipal needs". To some extent, PPP is regulated by the Federal Law of the Russian Federation of July 22, 2005 No. 116-FZ “On Special Economic Zones in the Russian Federation” (providing benefits to businesses in a certain territory is also a variant of PPP in the broad sense). However, all these legal acts do not cover all possible forms of PPP.
Of the above types of PPPs, only three are fixed in Russian legislation (BOT, BTO, BOO). Nevertheless, PPP in Russia works even without a developed legislative framework: at the beginning of 2013, about 300 such projects were launched and implemented in Russia.
The federal law on PPP in Russia has been discussed since the mid-2000s, but its first version was prepared only by June 2012. The second version of the law appeared after 4 months. On March 13, 2013, the Government submitted to the State Duma the third version of the draft law “On the Fundamentals of Public-Private Partnership in the Russian Federation”. In previous editions, housing and communal services and defense facilities were excluded from the scope of the law. Now there are no such restrictions. Among the innovations, the introduction of a single tender for the entire PPP project (instead of separate tenders for each type of work) is also noted, as well as, on the contrary, the abolition of the tender for the transfer of land plots necessary for the construction of a PPP facility. A generally accepted definition, as well as a federal law on PPP, does not exist today. On April 26, 2013, the State Duma adopted in the first reading bill No. 238827-6 “On the Foundations of Public-Private Partnership in the Russian Federation”, which defines the foundations of public-private partnership. The second reading is scheduled for the autumn session. However, Russia has already concluded a number of international treaties that provide for the principles of public-private partnership, and in accordance with the provisions of paragraph 4 of Article 15 of the Constitution of the Russian Federation, such provisions take precedence over Russian laws.
The development of PPP in Russia is hampered not only by the lack of developed legislation. Equally important is the lack of long-term financing mechanisms. Russian business (in particular, banks) is not ready to participate in long-term projects (PPP agreements are usually concluded for 10-50 years). Now most of the large PPP projects are being implemented in the "manual control" mode. Thus, the construction of the Western High-Speed Diameter became possible only after the intervention of Vladimir Putin.
In 2007, the Development Bank was established on the basis of the Vnesheconombank of the USSR. The main law regulating the activities of this institution directly assigns to it the functions of a participant in the PPP market. The PPP Directorate of Vnesheconombank is a structural subdivision of the Development Bank.
In world practice, specialized non-governmental organizations involved in the methodological support of PPP projects and the development of the infrastructure investment market as a whole appeared in the early 2000s. PartnershipsUK in Great Britain can be considered the first, then similar centers appeared in South Africa, Australia (Victoria), etc. The emergence of PPP development centers was preceded by state structures that carried out the functions of methodological support and development of the primary regulatory framework in the field of PPP. Most PPP development centers are responsible for developing feasibility studies and drawing up plans for the implementation of PPP projects, as well as providing further consulting support for PPP projects. Some centres, such as Parpublica and PartnershipsBC, assist ministries in developing business plans and conducting value for money analyses. Others, such as MAPPP, Paptnerships SA, and South Africa PPPUnit, deal exclusively with the analysis of documents and feasibility studies for PPP projects written by government organizations.
By analogy with foreign centers for the formation and development of the PPP market in Russia, the Center for the Development of Public-Private Partnerships was established. The PPP Development Center publishes an electronic journal "Public-Private Partnership in Russia", established the first PPP-institute, actively participates in legislative and other activities to establish and improve public-private partnership in Russia.
In No. 1 of the PPP-Journal (February 2013), the PPP-Start rating was published, which characterizes the readiness of the subjects of the Russian Federation to build public infrastructure facilities with the involvement of private investors on the principles of PPP. The “readiness of a constituent entity of the Russian Federation to implement PPP projects” refers to the fulfillment of a number of conditions that provide a favorable climate for the implementation of investment projects based on PPP principles.
Public-private partnership in St. Petersburg
Regional authorities in Russia are also adopting their own PPP programs in order to build long-term and mutually beneficial cooperation between the JIPO and the private sector for the implementation of large public projects. So, according to the head of the Committee for Investments and Strategic Projects A. Chichkanov: "The PPP mechanism allows not only to raise funds for the implementation of socially significant projects for the city, but also to find the most advanced technical solutions and effectively manage the created facilities."
At the rate World Bank, St. Petersburg is currently implementing one of the world's largest programs for the implementation of projects using public-private partnership schemes. The city has developed its own legislative framework that allows investors to interact with regional authorities as efficiently as possible:
So in 2006, the Law of St. Petersburg dated December 25, 2006 No. 627-100 “On the participation of St. Petersburg in public-private partnerships” was adopted.
In addition to it, after 3 years, the Decree of the Government of St. Petersburg of March 31, 2009 No. 346 “On measures to develop public-private partnerships in St. Petersburg” was issued.
As part of the administrative reform, the administrative regulations of the Committee for Investments and Strategic Projects were created. in the same 2009, the Decree of the Committee for Investments and Strategic Projects of the Government of St. making a decision on the implementation investment project through the participation of St. Petersburg in a public-private partnership"
Finally, in order to facilitate the implementation of the adopted documents, the Decree of the Government of St. Petersburg dated March 31, 2009 No. 347 “On measures to implement the Law of St. Petersburg “On the participation of St. Petersburg in public-private partnerships”” was developed.
Current PPP projects in St. Petersburg
On the basis of the Law of St. Petersburg "On the participation of St. Petersburg in public-private partnerships", two major projects are being implemented: the development of the Pulkovo airport and the construction of a plant for the processing of municipal solid waste in the village of Yanino. Preliminary preparation of PPP projects in the field of housing and public utilities (water and heat supply, energy conservation, etc.), development of transport infrastructure and in the social sphere (construction of socially significant facilities - schools, hospitals, etc.).
Competitions for PPP projects in St. Petersburg
On March 31, 2011, the results of an open tender were summed up for the right to conclude an agreement on the creation and operation on the basis of a public-private partnership of buildings intended to accommodate educational institutions in the Pushkinsky district of St. Petersburg and a land lease agreement. LLC " Management Company"Turn". Currently, the Committee has announced tenders for the implementation of the following projects:
construction of the Palace of Arts on Vasilyevsky Island
creation and operation of the highway "Western high-speed diameter"
reconstruction and construction of facilities at the Northern Water Pumping Station of St. Petersburg with the introduction of a two-stage water treatment technology
Public-private partnership in Moscow
In Moscow, unlike most other subjects of the Russian Federation, there is no law on PPP of its own. According to the mayor of the capital, Sergei Sobyanin, it is not planned to be adopted in the future, since the existing regulatory framework is sufficient for work. However, Moscow is now in 13th place in the PPP Start regions ranking.
PPP projects in Moscow
According to the PPP scheme, the Myakinino metro station was built, and the construction of the Moscow-St.
A landmark PPP project in Moscow will also be the Solntsevo-Butovo-Vidnoye road in the territories annexed in the summer of 2012. The developer MDGroup, who is building a microdistrict in Butovo, will participate in its implementation. Together with private investors, it is planned to build a northern understudy of Kutuzovsky Prospekt, as well as reconstruct 63 city hospitals.
Earlier, another major PPP project in the healthcare sector was implemented in Moscow. Deal of the Medsi clinic network, controlled by AFK Sistema, with the Moscow government. In 2012, in exchange for a 25% stake in the combined company, the Moscow government transferred 5 clinics, 3 hospitals and 3 sanatoriums to Medsi. ApaxPartners, an American investment fund specializing in medical assets, and RDIF were also invited to participate in the deal, which will jointly invest about 6 billion rubles in the development of the network. The participants' shares will be distributed as follows: AFK Sistema will receive half, the Moscow government will receive a quarter, and ApaxPartners and RDIF will receive one-eighth each.
Another example of cooperation between the Moscow authorities and business in the field of medicine is the program of opening private medical clinics on the first floors of buildings owned by the city.
Public-private partnership in Ukraine
In October 2010, the Law of Ukraine "On Public-Private Partnership" came into force - a law that reflected the point of view of the Ukrainian state on the principles, forms and conditions of interaction between business and the state.
Public-private partnership as a way of organizing public-private legal relations has been known to Ukrainian business for a long time. In practice, it is expressed in the forms of joint activities, management of state property, lease state property, concessions and others. The new law actually reproduces the picture of public-private partnership that exists in practice, with the addition of strokes desirable for the state. The term "public-private partnership" was introduced as a political and managerial, not a legal category. It is defined as cooperation between the state represented by its bodies and business entities, based on an agreement. More information about public-private partnerships in Ukraine can be found on the Ukrainian page/
Sectors of application of public-private partnership
It is important to identify the most priority sectors for the application of PPP for each country and region. Attracting investments in all sectors of the economy at once in full is almost impossible, besides, there are those sectors that need to be invested in the first place. In addition, the sectors in countries with different levels of economic development, in which, according to the government of the country, it is necessary to invest through the involvement of the private sector, differ significantly.
The relevance of PPP is also determined by the fact that at present in Russia concession agreements are used mainly in housing and communal services, in the construction of roads, railways and ports. However, PPP can be effectively used in other industries as well. At the stage of the formation of the concession legislation, the development of new methods of relations between the state and business in Russia, an important point is the identification of all priority sectors for the development of partnerships.
To create a detailed industry picture that reflects the possibility of using PPP in the economy of the Russian Federation, it is necessary to analyze the foreign experience of PPP.
An analysis of such experience in the use of PPP in countries with different levels of socio-economic development, implemented using the concession form of PPP, showed that such partnerships are successfully used in transport (roads, railways, airports, ports, pipeline transport) and social infrastructure (health, education, entertainment, tourism), housing and communal services (water supply, electricity supply, water treatment, gas supply, etc.), in other areas (prisons, defense, military facilities). At the same time, transport infrastructure is leading, followed by social infrastructure by a small margin.
If we analyze the use of PPP by country, then depending on the level of socio-economic development of the country, the picture will change. Thus, compared with the overall picture in the G7 countries (USA, UK, Germany, Italy, Canada, France, Japan), transport infrastructure projects are far from being in first place. In the G7 countries, health care is in 1st place (184 out of 615 projects), education is in 2nd place (138 projects), and roads are in 3rd place (92 projects).
An analysis of foreign experience in the use of PPPs showed that each of the G7 countries has its own top-priority industry for the use of PPPs. Thus, in the USA, such an industry is roads (32 out of 36 projects), in the UK - healthcare (123 out of 352 projects) and education (113 out of 352 projects), in Germany - education (24 out of 56 projects), in Italy, Canada and France - healthcare.
Thus, the following conclusion can be drawn: in those countries that are characterized by the presence of a market economy, a high level of labor productivity and the level of consumption of GDP per capita, where the state guarantees a high level of social protection, where the average life expectancy is high and there is a high quality of medical care and education, PPP is used more often in the healthcare and education sectors, which is dictated by government policy.
In other developed countries (Austria, Belgium, Denmark, Australia, Israel, Ireland, Finland, Spain, Portugal, Greece, South Korea, Singapore), the industry associated with the construction and reconstruction of roads is in 1st place in terms of the number of PPPs used (93 project), and is already followed by a very significant gap in healthcare (29 projects), education (23 projects) and accommodation (22 projects).
Thus, there is a correlation between the level of development of the country and the industry that is chosen to attract investment in it with the help of PPP. Due to the high level of socio-economic development of the G7 countries and other developed countries, the priority of healthcare and education sectors is also determined by the policies of these states and their socio-economic development.
On the contrary, in developing countries and countries with economies in transition, these sectors (with the exception of roads) will not be a priority. Given the lower level of economic development in these countries, transport infrastructure, namely the construction and reconstruction of roads, ports, railways, etc.
Thus, in countries with economies in transition (37 out of 915 projects) - countries of Central and Eastern Europe (Bulgaria, Czech Republic, Hungary, Croatia, Poland, Romania); Baltic countries (Latvia); the CIS countries (Ukraine), the sectors "Health" and "Education" are already far from the 1st place in the use of PPP - roads, the construction of bridges and tunnels, light ground metro, airports are in the lead. In countries with economies in transition, they are given first priority, and funds are invested in them.
In developing countries (22 out of 915 projects) - India, Brazil, Chile, Hong Kong, Mexico, Saudi Arabia, United Arab Emirates, as in the previous group of countries, roads are in 1st place in terms of the number of PPPs, in 2nd place - airports, prisons and water treatment plants. This distribution primarily reflects the interest of countries in the development of these industries (individual for each type of country), since PPP allows you to attract private sector investment, reduce public sector costs, and distribute risks between partners.
In a number of Eastern European countries in the late 1990s and early 2000s, in connection with preparations for accession to the EU, PPP methods began to be actively used in the transport infrastructure sectors and in the urban economy. Projects to attract private investment in the expansion of the highway network, the modernization of ports and airports are being implemented on the basis of structural assistance from the EU.
Moreover, the specific experience turned out to be ambiguous: along with successful ones, there were also cases of problematic, not always successful solutions.
An example of an effective PPP project is the expansion and modernization of the international airport in Warsaw. More than 85% of passengers on international flights used the Warsaw airport, which required almost doubling the airport's passenger and cargo turnover in a relatively short period of time. Without attracting private capital and know-how, it would be impossible to implement such a project.
According to the results of an open European competition, the German company Hochtif AG acted as a private partner of the project, having developed a special PPP financing model for airports in Central and Eastern Europe. A consortium was formed (general contractor - "Hochtif Airport GmbH"), which, as partners, included small and medium-sized enterprises from Poland and Germany. Private funding was provided by a consortium of banks led by AO Citibank. The recipient of the loans and the state partner of the project was the Polish Airports PPL agency.
The cost of the project amounted to 153.4 million euros, up to 80% of its financing (according to the cash-flow model) came from the private side. The state-owned Polish airline, LOT, was included in a private loan guarantee agreement and an airport use agreement. The successful completion of the work contributed to the fact that in the future the general contractor took part in the reconstruction projects on the principles of PPP of the airports in the cities of Dusseldorf, Hamburg and Sydney.
Often there are examples of inefficient PPP projects due to miscalculations on the part of the state.
For example, a problematic infrastructure project was implemented in the Czech Republic. Attracting private investment in this country is carried out according to the British model of private financial initiative (PFI). The Czech experience illustrates the potential risks and challenges faced by an inexperienced and ill-prepared public partner. For the construction of a segment of the strategically important autobahn D47 with a length of 80 km, a foreign private developer proposed a project that at first glance was attractive and received a contract with virtually no competition.
The team of the public partner, not having sufficient PPP experience, was unable to adequately assess the intentions of the private contractor, who, as practice showed, was not very eager to implement the project. The financing structure he proposed ultimately boiled down to shifting all the risks to the state. As a result, the Czech government was forced to terminate the project and pay a significant penalty.
The project for the reconstruction of Germany's largest airport in Frankfurt am Main was recognized as a successful model for effectively combining the interests of public and private partners. The project assumed a preliminary stage of privatization - the issue of shares, 29% of which were sold for stock exchange(similar to "people's IPO"). The rest of the shares were held by the state of Hesse (32.1%), the city of Frankfurt (20.5%) and the state (18.4%). Fraport JSC, formed in this way, deliberately retained control of public investors. At the same time, the JSC is a private shareholder of other German airports, i.e. the private side of partnerships in them is represented by a structure with predominantly state participation.
Currently budget financing development of transport infrastructure is carried out in two ways: first, directly - for large projects (for the reconstruction of highways and airports); secondly, indirectly - through the state infrastructure development fund.
Application of public-private partnership in Russia
Currently, the Government of the Russian Federation considers as priority areas for PPP:
Development of production and transport infrastructure;
Department of Housing and Utilities;
Health and Social Services;
Financing of scientific research with prospects for commercialization;
Development of innovation infrastructure.
At the same time, in Russia, the risks of miscalculations by both public and private partners in PPP projects are obviously very high. There has already been a trend towards a strong rise in the cost of projects in comparison with their initial cost. The rate of appreciation can reach 20% per year, and the reasons are not only in simple mistakes and miscalculations of the authors, but also in quite objective circumstances - the constant rise in prices for raw materials, materials, services. World experience shows that the only way out of this situation is to attract private capital, which means creating more attractive conditions for it compared to ordinary commercial activities.
Nevertheless, in Russia there is a large-scale potential for the development of many forms of PPP, but for its practical implementation it is necessary to solve a number of fundamental issues.
First, both sides of the partnership should clearly understand that an effective PPP cannot be viewed only as attracting additional resources to capital-intensive projects of authorities at all levels. It is necessary to take into account the real interests of both parties. Specific partnership mechanisms developed by world experience create the basis for a mutually beneficial responsible distribution of the powers of the parties, which does not infringe on the interests of each of them. However, the possible benefits are not realized by themselves, after the adoption of the relevant regulatory package. It is necessary to understand the peculiarities of the Russian model of interaction between the state and business.
An effective partnership is real only if the strategy for the further development of the country is completely clear and predictable. Without this, without confidence in the stability of the "rules of the game," nothing can be expected from business except ostentatious interest and formal participation in large-scale government projects for the purpose of self-preservation. In this case, the factor of effective entrepreneurship may be lost.
Secondly, significant progress is needed in the understanding and practical implementation of the public law functions of the state. So far, Russian legislation does not specifically single out public law functions and does not establish a connection between them and public property. The construction of law is such that public law functions are implemented either administratively or through civil law functions. It is impossible to organize on this basis the distribution of powers between the parties to the partnership. Countries with developed market economies have accumulated extensive experience in successfully searching for answers to the "paradoxes of public goods", which, taking into account domestic specifics, can also be used in Russia.
Providing state support in the implementation of investment projects of national importance and carried out on a PPP basis is the goal of creating the Investment Fund of the Russian Federation. In accordance with the Regulations on investment fund RF, the following forms of providing state support in the framework of the implementation of PPP projects are possible:
Co-financing on contractual terms of an investment project with the registration of property rights of the Russian Federation, including financing the costs of managing the investment project, as well as financing the development of project documentation;
Direction of funds to the authorized capital of legal entities;
Providing state guarantees of the Russian Federation for investment projects, as well as other methods provided for by budgetary legislation to ensure obligations that are within the competence of the Government of the Russian Federation. State guarantees are provided to commercial organizations participating in an investment project in favor of credit organizations, including credit organizations with foreign investments;
Transfer of part of the risks to a private investor. The idea of PPP allows you to correctly share the risks between the parties to the agreement.
When implementing state support for the private sector in a PPP environment, one should take into account the problem of determining the optimal share of investor participation in profits and in the total investment, regardless of the industry of the project. It needs to be established that:
each participant in the project independently sets goals for himself and determines the interests in accordance with which he evaluates the profitability of the project (as a rule, this is the profit that the participant expects to receive from investing);
the project developer should, if possible, understand the goals and interests of the participant and justify the benefits of his participation in the project by those indicators that reflect these goals and interests better. In this case, the investor's share in capital costs can range from 0 to 100%.
The formation of incentives for investment activity should be based on the creation of opportunities to achieve maximum profitability. Investors need not temporary incentives, but long-term guarantees of return on invested capital. If this is not the case, then the growth of entrepreneurial risk leads to a reduction in the investment proposal and the "flight" of capital from the country. In turn, in exchange for the provided legal guarantees of stability, the state can insist on new forms of control and transparency of reporting.
In order to attract investors in investment projects implemented under the PPP scheme, the state may apply measures to stimulate the investor (subsidies, subventions, direct reimbursement of investment costs, etc.) to ensure the required return to the investor. At the same time, it is important to take into account that the state, when concluding an agreement with an investor, is guided not only by purely entrepreneurial, "business" motives, but also by public interests, socially necessary goals, public utility, which often require deviating from market, private law criteria for the behavior of the state.
Thus, a new mechanism for attracting investments has been launched in Russia and a dialogue between the state and business has begun. The state is ready to provide financial assistance to PPPs, as well as to take on some of the risks. There remains a need for a highly professional selection of public sector funding and project implementation options, as Russian PPPs will have to compete with PPPs already operating on the global market.
Purpose of public-private partnership ( PPP) - development of infrastructure in the interests of society by combining the resources and experience of each of the parties, the implementation of socially significant projects at the lowest cost and risk, subject to the provision economic entities high quality services. PPP- a qualitatively new and effective way to attract investment, since partnerships of this type can not only contribute to the growth of the city's economy, but also develop the city's socially important infrastructure.
The term "" is a translation of the concept of public-private partnership that is widespread in the world. AT foreign countries Ah, as in Russia, the term "public-private partnership" is sometimes used to emphasize the priority role of the private sector. But we believe that, based on the content of the concept " public private partnership"and modern Russian realities, in Russia it is advisable to use the term" public private partnership which clearly defines the leading role of the state.
PPP in the world economy
The state of emergency, by its economic nature, is the result of the development of traditional mechanisms for the interaction of economic relations between government and the private sector in order to develop, plan, finance, build and operate infrastructure facilities. Thus, the partnership between the state and the private sector can be characterized as a long-term interaction in order to attract additional sources of funding, to achieve the successful fulfillment of the duties of the municipality. Therefore, there is a need to identify the most priority sectors for the application PPP for each country and region. Attracting investments in all sectors of the country's economy at once in full is almost impossible, moreover, there are always those sectors that need to be invested in the first place. In addition, the sectors in countries with different levels of economic development, in which, according to the government of the country, it is necessary to invest through the involvement of the private sector, differ significantly. In this regard, in July-August 2006, we conducted a study to identify priority sectors for the use PPP in foreign countries.
The relevance of this work is also determined by the fact that today in Russia concession agreements are used mainly in housing and communal services, in the construction of roads, railways and ports. However, as the study showed, PPP can be effectively used in other industries. At the stage of the formation of the concession legislation, the development of new methods of relations between the state and business in Russia, an important point is the identification of all priority sectors for the development of partnerships. In order to create a detailed industry picture that reflects the possibility of using PPP in the economy of the Russian Federation, we conducted an analytical analysis of the foreign experience of public-private partnership.
Analysis of randomly selected 915 foreign projects in countries with different economic development, implemented using the concession form PPP, showed that such partnerships are successfully applied in transport (roads, railways, airports, ports, pipelines) and social infrastructure (health, education, entertainment, tourism), housing and communal services(water supply, electricity supply, water purification, gas supply, etc.), in other areas (prisons, defense, military facilities). Transport infrastructure leads the way, followed closely by social infrastructure (Fig. 1).
But if we analyze the use PPP-projects by country, considering them in accordance with the UN classification, then depending on the socio-economic development of the country, the picture will change. On fig. 2 shows the usage diagram PPP-projects in the G7 countries (USA, UK, Germany, Italy, Canada, France, Japan) by industry (analyzed 615 out of 915 PPP-projects). If we compare Fig. 1 and 2, we will see that compared to the overall picture in the G7 countries, transport infrastructure projects are far from being in first place. In the G7 countries, health care is in 1st place (184 out of 615 projects), education is in 2nd place (138 projects), and roads are in 3rd place (92 projects) (Table 1).
Such a distribution of industries is not surprising, especially if we take into account the peculiarities of the socio-economic development of this group of countries. A more detailed study of foreign experience showed that each of the G7 countries has its own top-priority industry for the use of PPP. Thus, in the USA, such an industry is roads (32 out of 36 projects), in the UK - healthcare (123 out of 352 projects) and education (113 out of 352 projects), in Germany - education (24 out of 56 projects), in Italy, Canada and France - healthcare.
Thus, the following conclusion can be drawn: in those countries that are characterized by the presence of a market economy, a high level of labor productivity and the level of consumption of GDP per capita, where the state guarantees a high level of social protection, where the average life expectancy is high and there is a high quality of medical care and education, PPP is used more often in the health and education sectors, which is dictated by government policy.
Let's consider other developed countries (Fig. 3, Table 2), which, according to the UN classification, include:
As seen in fig. 3, ranked 1st by the number of use PPP-projects is the industry associated with the construction and reconstruction of roads (93 projects), and it is already followed by a very large margin of healthcare (29 projects), education (23 projects) and accommodation (22 projects).
If we turn again to Fig. 2 and compare the results of the analysis of the two groups of countries, we will see that in the G7 countries health care is in 1st place, education is in 2nd place, and only then are roads. Therefore, we can formulate the following statement: there is a correlation between the level of development of the country and the industry that is chosen to attract investment in it with the help of PPP. Due to the high level of socio-economic development of the G7 countries and countries that we have classified as "other developed countries", the priority of healthcare and education sectors is also due to the policies of these states and their socio-economic development.
If we look closely at Fig. 2 and 3, we will see that the leading sectors in both cases are healthcare, education, roads, but depending on the group of countries, their places in the top three are distributed differently. If the statement formulated above is true, then in developing countries and countries with economies in transition, these sectors (with the exception of roads) will not be a priority. Given the lower level of economic development in these countries, the first place in terms of priority for attracting investment through PPP transport infrastructure should come out, namely: the construction and reconstruction of roads, ports, railways, etc. To confirm or refute this assumption, we will consider countries with economies in transition (37 out of 915 projects). In accordance with the classification of the UN, we have attributed to the countries with economies in transition:
As seen in fig. 4 and table. 3, the "health care" and "education" industries are already far from the 1st place in terms of application PPP- roads, construction of bridges and tunnels, light ground metro, airports are in the lead. This picture is quite predictable and realistic. In countries with economies in transition, these industries are given first attention, and it is in them that funds are invested.
Now consider developing countries, according to the UN classification (22 out of 915 projects):
As in the previous group of countries in developing countries in 1st place in terms of the number PPP-projects are roads, in 2nd place are airports, prisons and water treatment facilities (Fig. 5, Table 4). This distribution primarily reflects the interest of countries in the development of these industries (individual for each type of country, as the study showed), since PPP allows attracting private sector investments, reducing public sector costs, and distributing risks between partners in project implementation.
Thus, based on the analysis, the following conclusions can be drawn:
1. There is a correlation between the level of socio-economic development of the country and priority sectors for application in them PPP-projects. So, in each of the subgroups, it is possible to single out the leading industries in terms of the use of PPP-projects. For example, in the G7 countries, more attention is paid to the social sphere (health, education), and in developing countries - to transport infrastructure (Fig. 6, Table 5).
2. In any country of each subgroup, the government selects the highest priority industry for implementation PPP-projects.
3. Based on the study, you can try to make recommendations to identify the top industries for application PPP-projects in Russia.
Application of foreign experience in the implementation of PPP projects in the infrastructure sectors of St. Petersburg
Considering the Russian Federation as a country that imports methods and principles, as well as features of the organization PPP-projects, we will try to apply foreign experience on the example of the northern capital, which is currently the most carefully prepared for the implementation and implementation of projects on the principle of partnership between the state and the private sector.
On December 20, 2006, the Legislative Assembly of St. Petersburg adopted the Law "On the Participation of St. Petersburg in Public-Private Partnerships", the goals of which were1:
1) implementation of socially significant projects in St. Petersburg;
2) attraction of private investments in the economy of St. Petersburg;
3) ensuring the efficient use of property owned by St. Petersburg;
4) improving the quality of goods, works, services provided to consumers.
The Law of St. Petersburg on participation in public-private partnerships establishes the procedure and conditions for the transfer of state property of St. Petersburg or the rights to carry out certain types of activities that are the prerogative of St. Petersburg to a private investor. He declares to the investor what projects and under what conditions St. Petersburg is ready to enter into relations PPP. There are no such laws in any subject of the Russian Federation.
The Law of St. Petersburg introduces the concept PPP as mutually beneficial cooperation between St. Petersburg and Russian or foreign legal or individual, in the implementation of socially significant projects, which will be implemented through the conclusion and execution of agreements, including concession ones.
As part of participation in PPP St. Petersburg may provide the investor with land plots, other immovable or movable property, owned by St. Petersburg, or exclusive rights owned by St. Petersburg.
According to the legislation, the city is ready to participate in PPP in the following sectors: transport infrastructure; public utilities systems, including engineering communications and household waste processing and disposal facilities; power supply facilities; objects of communication and telecommunications; healthcare facilities; objects of education, culture and social services; objects of tourism, recreation and sports.
Currently, a number of projects are being implemented in St. Petersburg to develop the transport infrastructure of the city and the region. The most significant and large-scale among them are the Western High-Speed Diameter (WHSD), the Marine Passenger Terminal (MPT), the Overground Express and the Orlovsky Tunnel.
The total capital expenditures (Capital Expenditure, CAPEX) of projects implemented in St. Petersburg will amount to about 165.19 billion rubles, of which the use of investment funds is estimated at 55%. For comparison: the city budget of St. Petersburg for 2006 was approved at the level of 180 billion rubles. Obviously, without the pooling of its own funds and the funds of private investors, the city administration would not be able to start implementing projects of this magnitude. Maximum use of the potential of the private sector will ensure the level of investment necessary for the development of St. Petersburg and will contribute to the growth of its economy.
Among other industries in which public-private partnerships are currently used, only housing and communal services.
With regard to the Russian economy in general and to the economy of St. Petersburg in particular, public private partnership should become one of the strategic directions for the development and modernization of modern infrastructure facilities. To identify the most priority sectors for the application PPP-projects of the city of St. Petersburg, an analysis was made of the policy of the city Administration, priority national programs and targeted programs. Taking into account the experience of foreign countries, and in particular the experience of the G7 countries, as well as taking into account the direction of the policy of St. Petersburg and its socio-economic development, in order to apply PPP-projects can recommend the following industries:
1. Health care. main goal state system health care in St. Petersburg is to preserve and improve people's health, reduce direct and indirect losses of society by reducing morbidity and mortality, intensify disease prevention, and combat socially significant diseases.
The healthcare policy is carried out in accordance with the main directions of healthcare development, defined in the Concept of Modernization of the Healthcare System of St. Petersburg for 2004-2010. Modernization of the healthcare system is being carried out in order to increase the efficiency of its functioning and is aimed at ensuring the quality and availability of medical and preventive care. Priority in health development is given to primary health care, maternal and child health services and emergency medical services.
In connection with this direction of the state health care system in St. Petersburg, there is a need for the construction, reconstruction, modernization of hospitals, clinics and other medical complexes. The development of this direction requires great financial investments, in connection with which it seems the most optimal to involve the private sector in the implementation of the health care program on the basis of partnership with the state. The experience of foreign countries has shown that such projects are effective and viable, and the city's policy is conducive to development. PPP in this industry.
2. Education. At the moment, the development of the education system in 2006-2008. in St. Petersburg largely depends on resource provision, the most important component of which is budget financing. Funds are needed to maintain and develop various types of educational institutions, to meet the growing needs of the population in a variety of educational services, and to develop the abilities of children.
For the development of the material and technical base of educational institutions from the budget of St. Petersburg in 2007, it is planned to allocate - 346.0 million rubles, in 2008 - 415.2 million rubles.2
We believe that funding education only from the budget is not able to cover all the needs of the city in this industry. PPP-projects in education can be used for construction and renovation educational institutions, modernization of schools and universities. Attracting private capital will reduce the burden on the city budget by several times, increase the viability of projects, provide new jobs, etc.
3. Transport infrastructure. St. Petersburg is the largest transport hub in Russia, through which international cargo and passenger flows pass. The transport complex includes all types of transportation: sea, river, rail, road, air and pipeline.
The main documents that determine the strategy for the development of the St. Petersburg transport hub are the "General Scheme for the Development of the St. Petersburg Port Hub (Big Port of St. Petersburg"), the Program for the Improvement and Development of Access highways to the Big Port of St. Petersburg", "Urban planning concept for the development of the Pulkovo airport zone" and "The concept of improving and developing the traffic management system in St. Petersburg". Much attention is paid to the development of the maritime component of the St. Currently, preparatory work is underway to implement a project to create a marine ferry-passenger complex on a newly formed (reclamation) territory on the western coast of Vasilyevsky Island.The implementation of this project will create conditions for receiving promising large-capacity cruise ships using the existing urban infrastructure. depending on the functioning of railway transport.The activities of the Big Port of St. Petersburg are provided by 6 port railway stations.At the largest stations "Avtovo" and they provide operational information interaction between the railway and the port complex, which allows for advance planning of the work of both the railway and the port In terms of rail freight traffic, St. Petersburg ranks second after the Moscow railway junction. The St. Petersburg railway junction connects Russia with Finland and Estonia. It converges 10 railway lines.
The basis of the railway transport hub is 5 railway stations and the largest marshalling yard in the North-West region. The railway has a developed production base to ensure a full cycle of main and auxiliary activities.
The high demand for a developed transport infrastructure has already ensured the introduction PPP-projects in this industry in St. Petersburg - the Western High-Speed Diameter, the Sea Passenger Terminal, the Orlovsky Tunnel, the Overground Express - these are the first transport infrastructure projects implemented through a partnership between the state and business. Except PPP-projects in the road sector, based on foreign experience and the legislative prerequisites of St. Petersburg, we believe that PPP will be effective for railway transport, and in the construction and reconstruction of airports, bridges and tunnels.
4. Tourism industry. The activity of the Government of St. Petersburg is aimed at turning tourism into one of the highly profitable sectors of the economy, providing a significant contribution to the socio-economic development of the city by increasing the revenue side of the budget of St. Petersburg and local budgets("In 2010, tourism revenues to the city budget may amount to 6-7 billion rubles, which is 2.5 times more than the current figure. And the total income of all participants in this area will reach 75-80 billion rubles. (Now it ranges from 20 to 25 billion)"3), inflow of investments, increase in the number of jobs by 75%4, preservation and rational use of cultural, historical and natural heritage.
The modern tourism industry is one of the most highly profitable and fastest growing industries in the global economy. According to the forecasts of the World Tourism Organization, by 2010 the total number of tourists will exceed 1 billion people a year, and the income received from each tourist will increase by 40% and amount to $ 1252. To ensure effective economic process reception of tourists in St. Petersburg, it is necessary to create an infrastructure that meets modern international standards. The solution to this problem is possible by attracting Russian and foreign investments for the construction and reconstruction of tourist infrastructure facilities.
PPP can be used in sectors of the tourism industry: construction/reconstruction of hotel industry facilities, improvement of the level of service at all enterprises of the tourist infrastructure, development and development of tourist and recreational SEZs, equipment and development of beaches, construction/reconstruction of holiday resorts, hospitals, health resorts, etc.
The main threats to the hospitality industry are the lack of funding. This problem, even despite the measures taken today by the Government of the Russian Federation and the Administration of St. Petersburg, will be quite difficult to solve without an injection of private capital. Business cannot develop without adequate state support. Therefore, in order to achieve positive results and realize the existing opportunities of the city, it is necessary to create PPP in the tourism industry and especially in the hotel business.
