p3’s in inland waterway projects and engineering ethics · 2016-12-01 · • originally private...
TRANSCRIPT
P3’s in Inland Waterway Projects and Engineering Ethics
IEEE Annual Ethics Dinner, November2016
Norma Jean Mattei, Ph.D., P.E. ASCE President
Global Strategy
Civil Engineers in
ASCE Vision Entrusted by society to create a sustainable world and enhance the global quality of life, civil engineers serve competently, collaboratively, and ethically as …
IEEE Vision IEEE will be essential to the global technical community and to technical professionals everywhere, and be universally recognized for the contributions of technology and of technical professionals in improving global conditions.
Engineering Ethics
IEEECodeofEthicsPOLICY7.8
Assistcolleague’sprofessionaldevelopmentandadherencetocodeofethics
#10
IEEECodeofEthicsPOLICY7.8
Avoidinjuringothers,theirproperty,reputa9on,oremploymentbyfalseormaliciousac9on
#9
IEEECodeofEthicsPOLICY7.8
Treatfairlyallpersonsregardlessofsuchfactorsasrace,religion,gender,disability,age,orna9onality
#8
IEEECodeofEthicsPOLICY7.8
Seek,accept,andofferhonestcri9cismoftechnicalwork;acknowledgeandcorrecterrors,andtocreditothers’contribu9ons
#7
IEEECodeofEthicsPOLICY7.8
Maintainandimprovetechnicalcompetence;undertaketechnologicaltasksonlyifqualifiedbytrainingorexperience
#6
IEEECodeofEthicsPOLICY7.8
Improvetheunderstandingoftechnology,itsappropriateapplica9on,andpoten9alconsequences
#5
IEEECodeofEthicsPOLICY7.8
Rejectbriberyinallitsforms
#4
IEEECodeofEthicsPOLICY7.8
Behonestandrealis9cinsta9ngclaimsores9matesbasedonavailabledata
#3
IEEECodeofEthicsPOLICY7.8
Avoidrealorperceivedconflictsofinterestwheneverpossible;disclosethemtoaffectedpar9eswhentheydoexist
#2
IEEECodeofEthicsPOLICY7.8
Acceptresponsibilityinmakingdecisionsconsistentwiththepublic’ssafety,healthandwelfare;disclosefactorsthatmightendangerthepublic/environment
#1
NormaJeanMaEei,DennisLambert,GarlandPennison,ErnieDroE
P3SoluMonsforInlandWaterways
Buenos Aires, Argentina, 7-11 September 2015
“SMART RIVERS 2015”
BuenosAires,ArgenMna,7-1September2015
FromPiancPresentaMon
WorkoftheASCECOPRIWaterwaysCommiEeeP3SubcommiEee• DefinePublic-PrivatePartnership(P3)
– WorldwideuseofP3– UShistoricaluseofP3– DifferenttypesofP3– RiskAllocaMonandRevenueGeneraMon
• USsurfacetransportaMonP3examples• WRRDA2014P3demoprojects
– Issues,barriersandpotenMalprojectsidenMfied
BuenosAires,ArgenMna,7-1September2015
WhatisaPublic-PrivatePartnership(P3)?
AnalternaMveprojectdeliverytoolforgovernmentcapitalprojects
• Increasedinvestment– throughprivateenMMesand/orpublicsponsors
• Acceleratedprojectdelivery• LifecyclecostreducMon/operaMonalefficiencies• Up-FrontFinancing• LongTermPayback• RiskallocaMon&incenMvizedperformance
Globally–WhyP3?Global Infrastructure Funding Deficit Source: OECD/WEF
• By 2030 global needs estimated to be $57-$67TR
• US needs estimated - $7TR by 2030
• 50% needs cannot be funded by public authorities
• Standard & Poor: most $$ will go to energy & transportation (so other sectors such as water are at greater risk)
• Governments are being asked to do more with less
Infrastructure deficiencies have a direct, material adverse effect on economic growth, competitiveness, life-safety and standards of living.
P3asaFinanceandDeliveryTool
20
• Common delivery tool: both developed and developing nations
• From 1990-2009, P3 contracts • 1400+ in EU ( ~ €260B) • 200+ in Canada (~C$70B)
• Total global P3 investments since 1990 estimated at over $4.3TR USD
• Both good and bad examples of P3 exist national/internationally
• US slow to adopt P3
Erie Canal (courtesy eriecanal.com)
Philadelphia & Lancaster Turnpike (courtesy The American Pageant)
P3MilestonesinUSHistory1792–Philadelphia&LancasterTurnpike(1stUSengineeredroad)
– Over100P3turnpikeconstrucMonprojectsin19thcentury1808–1825ErieCanalConstrucMon
USDepartmentofTransportaMon– 1990-SpecialExperimentalProjectsNo14–AlternaMveContracMng(SEP-14)
– 1994-InnovaMveFinanceProg.–Test&Eval.Project(TE-045)– 1998-TransportaMonEquityActfor21stCentury(TEA-21)– 2003-Safe,Accountable,FlexibleandEfficientTransportaMonEquityAct(SAFETEA)
2014–WaterResourcesReformandDevelopmentAct
P3–WhatTypeofInfrastructure?
22
■ Rail ■ Roads ■ Airports ■ Ports ■ Multi-Modal
■ Education ■ Public Buildings / Facilities ■ Social housing ■ Healthcare ■ Municipal works
Transport
Social Infrastructure
■ Power generation and transmission ■ Oil and gas storage and transport ■ Water and waste management ■ Environmental works
Environment & Energy
■ Defence and National Security ■ IT backbone ■ Telecommunications infrastructure ■ National Broadband ■ Emergency Response
Other
Key asset types Key Infra Sectors
TypesofP3§ BroadSpectrumofPossibleOp9ons
Design/Build/Finance(DBF),Lease/Design/Operate(LDO),Design/Build/Operate/Maintain(DBOM),Affermage(enhanceduselease),Design/Build/Finance/Operate/Maintain(DBFOM),Build/Operate/Transfer(BOT)
§ P3Transac9onDesignContractsaredifferenMatedinlargepartbyriskallocaMonandprojectscopeofservices:
23
TypicalP3Arrangement
24
PublicPartner• Specifiesrequirements/standards
• Ownsassets/publicservice
PrivatePartner• BuildfaciliMes• Provideservices
• Infrastructureandservices
• PaymentstoPublicPartner
Rights Users / Public
Federal Sponsor
P3/P4 Contract
Local Sponsors
Equity Investors Creditors
Design / Build O&M
Usage Fees
BuenosAires,ArgenMna,7-1September2015
RiskAllocaMoninP3
25
RiskAllocaMoninP3
26
§ HowisRiskAllocated?Tothepartybestabletomanageit
Too little: no
Value For Money Too much:
project failure
Risk Transfer
Optimal: efficient sharing
of risks
P3CompensaMonModels
27
P3 is not “free money” - investments and costs need to be repaid
Type User Applica9on RiskConsidera9ons Comment
UserCharges CustomersTollroads,ports,airports,water,electricity,etc.
Demandrisk,affordabilityissues,collecMonrisks,enforceability,cost-recovery
• NeedforcleareconomicregulaMon.
• RiskscanbemiMgatedwithguaranteestructures.
UsagePayments PublicenMty Shadowtolls
Demandrisk,performancerisk,creditriskofpayingagent.
• Needforusage,availability,andperformancemonitoring
Off-takepayments UMlity UMliMes(energy,
water,etc.)Availabilityandperformancerisks,creditriskofpaymentagent
• Needfordetailedoff-takecontracts
• PriceregulaMonsAvailabilityPayments
PublicenMty
PFI,infrastructureassets
Availabilityrisk,creditriskofpayingagent.
• Needfordetailedavailabilitycriteria.
PerformancePayments
PublicenMty
PFI,infrastructureassets,faciliMesmanagement
Performancerisk,creditriskofpayingagent
• Needfordetailedavailabilitycriteria
Grants&Guarantees
PublicenMty
Allinfrastructureasset
MechanismstomiMgaterisksandenhanceaffordability
• GovernmentcapitalpaymentsorcontribuMons
• Minimumrevenueguarantees
AncillaryRevenue Customers Commercial
acMviMes Commercialrisks • TypicallysubjecttominimalornoregulaMon
P3RevenueStructures
FundingSources&FinancingTools
USP3Experience
30
Federal• DOT$28BillioninFHWAprojectsalone• DOEenergyinfrastructure:renewableenergy,nuclearsafetyandhydrogeninfrastructure
• DODmilitaryhousingandrenewableenergy.WorkingonP4forsharedservices
• USACEWWRDA’14pilotprogramunderway• CBPcustoms/borderfaciliMesagreementsinHouston,Dallas,andMiami
• GSAgeneralservicesgovernmentfaciliMesState/Local• MajorityofUSstateshaveadoptedP3enablinglegislaMoninmulMplesectors
• Standard&PoorpredictsUSP3markettobecomemarketleader
USP3Example#1
31
LasVegasMonorailCompany,NevadaDeptofBusiness&Industry,ClarkCounty,andNevadaDOT• $650M• Originallyprivatejointventure(MGMGrandandBally’sHotel)• ‘97NV:privatecompanytoown,operate,fareforpublicmonorail• Mod50yrBOT(w/ClarkCounty),Currentexpansion:DBOMFundingsources• Taxexemptrevenuebonds(backedbyfaresandadverMsing)
USP3Example#2
32
PortAuthorityofNewYorkandNewJersey–tollbridge• $1.4Bineligiblecosts• 40yrDBFMconcessionFundingsources• TIFIAloan,privateacMvitybonds• Equity• PortAuthoritymilestonepayments
USP3Example#3
33
FloridaDOTandI-4MobilityPartners–expresslanesw/toll• $2.9M• 40yr,DBFOMavailability/milestonepaymentconcessionFundingsources• Bankdebt,TIFIAloans• EquitydistribuMon• FDOTmilestoneconstrucMonpayments• TIFIAcapitalizedinterestandinterestincome
InlandWaterwaysOpportuniMes
• EnablinglegislaMon:WRRDA2014&WIFIA• SignificantImpedimentsandConstraints
– NoauthoritytotransfermoneytootherenMMesexceptthroughFARcontracts
• CostsharingagreementsauthorizedinWRDA’86(P4?)
– OMBscoring
– Mustalreadybeauthorized– Ringfencingissuew/revenuegeneraMon– NoappropriaMonsforP3demoprojects
– *
* = Current demo project avoids issue – solutions that can be replicated in future P3s X = Constraint exists
Whi_erNarrows(FRM)
X X X X X X X Fargo
Moorhead(FRM)
* * X X X X X SabineNechez(NAV)
* * * * GreatLakes
(NAV)* * * *
ILWaterways(NAV) X X X X X X X X
Recrea9on(REC)
* * X X X
WDMayo(Hydro)
* * * * *
ListofP
rojects
! $ NEW
P3DemoProjectConstraints
Key Program Constraints Pilot Impediments Program Gaps
P3Challenges&OpportuniMes§ Requiresextremelycomplexpolicy§ USACEmustchangeitstradiMonalwayofdoing§ USACECivilWorksassetsclassesarediverse
§ projectsauthorized(&operated)forusuallyonlyonebutprojectispartofaSYSTEM• Flood&CoastalStormDamage• CoastalHarbors/Dredging• InlandWaterways• Hydropower• Dam&LeveeSafetyPrograms• WaterStorage• AquaMcEcosystems
• Water-basedRecreaMon§ ProgrammaMcchallengesexist,butarenot
uniquetoUSACE36
MovingForward
• ChangelegislaMonandpolicytorelieveconstraints– Ringfencing– Statusquofortotalfundingbutwithincreasedrisk
• Aggressivelyinvolveindustrypartners• StrengthenWIFIA• Educatethepublic
P3ChallengesRECAP• FederalPaymentMechanisms
– Can’tmakecommitmentsonfutureappropriaMons
• RevenueGeneraMon– Newauthoritytoallowaprojectrevenuestream
• Budgetability– LacksfullalignmentwithprioriMzaMonofprojectswithincurrentbudgetpolicy(BCR)
• Non-FederalPartner– Aleadnon-Federalpartnerisneededforthiseffort
• ProgramAuthorizaMon– NofundingtomoveforwardwithP3pilotprojectatthisMme
P3InLandWaterwayProjects
• FargoMoorheadDiversionProject– Twoseparateparts(reallyaP4)– USACEpart:Undercontract– MNDNRdeniedpermitinOctober(EISissues)
• IllinoisWaterwayProject– InnegoMaMons– Embracedbyseveralusersofthewaterway
ProjectMap• Fargo,ND• Moorhead,MN• CassCounty,ND• ClayCounty,MN• CassCountyJointWaterResourceDistrict
• Buffalo-RedRiverWatershedDistrict
FargoMoorheadDiversion
• FormedtheFloodDiversionBoardofAuthority(DiversionAuthority)– esMmated$1.8billionProjectcosts
– SplitDeliverymodel• DiversionAuthorityintendstodeliverthroughP3• TheDCAIWPgenerallyconsistsof30milesofchannel,2aqueducts,2riverinlets,variouslocaldrainageinlets,thechannelouqall,4railroadbridges,4interstatehighwaybridges,and10countyroadbridges,aswellasassociatedenvironmentalmiMgaMonandrecreaMonalfeatures
IllinoisWaterwayP3Project
• IWWP3Demonstra9onProject– HelpaddressFederalmaintenancebacklog– ProvidealternaMvefundingsourcestoaddressmaintenanceneeds
– Speeduprepairsandupgradestoaginglockanddams(resetsystemin7-10years
– GreatlyimprovenavigaMonsystemreliability(>50%vesselsexperienceddelaysonIWWin2014)
– Reduceriskstousers/shippersandimprovetheeconomicviabilityofthenaMon
IllinoisWaterway
Colleague’sPerspecMveonP3
• Asayoungengineerinthemid'70's– consulMngteamprogrammanager
• firstregionalUSsolidwaste/resourcerecoveryschemes
• fourcounMesoftheTampaBayarea
• Teammember:recentlyreMredchiefeconomistoftheNYDeptofPublicFinance– proposedasfinancingscenarios– revenuesharingopMonsfortheparMcipaMonofprivatecapitalinsomeofthelargercomponentsofthesystem
Colleague’sPerspecMveonP3• ThenumberslookedveryaEracMveinthefirstfewyears
• GraduallyMppingfeesincreasedafewcents/ton– atabouttenyearsintothevalueanalysis– equityinvestorswereassuredofrevenuecomparedtothepublicdebt(revenuebond)holders
• Theyrevisedthemixofexpense(capital,O&M,etc.)opMons– Unlessthepublicownedtheland– nocombinaMonsgavethelifeMmebenefittothepublic
TheInfrastructureProblem
• USfacesagrowingbacklogofinfrastructurerepairandexpansionprojects
• Manyoftoday’sassets– propelledrapideconomicgrowthauerWWII
– havecometotheendoftheirusefullives
• Governmentatalllevelsmustincreaseinfrastructureinvestment– ASCEesMmatesneedsat$3trillion– Ifnot,USfacesadragonproducMvity
Howdowefundinfrastructure?• Usuallystateandlocalgovernmentsfinancepublicinfrastructure– issuanceofmunicipalbonds
• RecentlyinsurfacetransportaMon,andwatersupplyandtreatmentandsolidwastehavesomeMmesusedWallStreet– AlternaMveformofinfrastructureprocurement(P3)thatmayinclude:
• equityfinancing• long-termmaintenanceandoperaMonscontractfortheprivateconcessionaire
WhysupportP3s?1.Liquidity
• Governmentshavebeenunabletoinvestsufficientlybecauseoflackofliquidity(accesstofinancialcapital).– Thereisavastamountofprivateequitycapitalavailable
– Currentmunicipaldebtis$3.7trillion– nonfederalborrowershavenoproblemaccessingthemunicipalbondmarket–itisrobust
• FACT:equitycapitalismoreexpensivethanbonds
Equityvsmunicipalbonds• Differentinthreeways:
– First,projectequityisnotlistedonapublicexchange;amunicipalbondistradablefixed-incomesecurity
– Second,thereturnthatequityinvestorsreceiveoverMmeisfederallytaxed
– Third,therateofreturnonequitycanbevariable.Example:atollhighway(concessionaireassumesrevenuerisk),therateofdependsontraveldemandandoveralltollrevenues
IMPORTANTPOINT:bothareprivatedollarsfinancinginfrastructureprojects
WhysupportP3s?2.PublicPensions
• P3scanstrengthenworkers’reMrementandbuildneededinfrastructureprojects– PublicpensionfundsareobligatedtoprovidebenefitstofuturereMrees,arequirementforwhichtheylackadequatefunding
– ThevolumeofP3transacMonswithanequitycomponentistoolow
– Pensionfundsaretax-exemptinvestors,meaningtheyhavenofederalincometaxliabil-ity
– SobondsnotaEracMve
Rateofreturn
• MunicipalBonds:– AAA-ratedbondsofferonly2.4percentannuallyovera30-yearperiod
• Privateequity– FHWAcitesarateonsurfacetransportaMonprojectsof8-14%annually
• Pensions:CaliforniaPublicEmployees’ReMrementSystem– fundisat~$300Bbutfundingliabilityis~$100B
CanP3ssolvethepensionproblem?
• TIFIA:– Began1998– Financed24projects– Totalcostoftheprojectsis$1.28billion– Averageequityinvestmentofis$183M
• SoCalPERSwould– Trytoreduceporqolioriskbytakingalimitedshareofequityinanygivenproject
– FundalotofP3projects
Sowhat’stheproblem?
• Thesinglemostimportantfactorconstrainingoverallgovernmentinvestmentininfrastructure– Notaccesstocredit– Ratherinsufficientgovernmentrevenues– TheproblemisfundamentallypoliMcal
– Thepublichasafinitewillingnesstopaythetaxesandfeesnecessarytoserviceprojectdebts
P3notasoluMontothedeficit• P3sareanalternaMveformofprocurementthatoffersgovernmentawaytomanagerisk
• Goodifproject– isacomplexfacility
– GovernmenthasliEleexperience– PrivateenMtyislockedtoprovidingaspecifiedLOS
• insulateacriMcalinfrastructureassetfromrisksofdecliningstatebudgetsandrecession.
• STILLneedtaxesandfeesnecessarytorepayprojectdebts,regardlessoftheirsource
QUESTIONS?