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GOVERNANCE AND DESIGN IN INFRASTRUCTURE PUBLIC PRIVATE PARTNERSHIPS
THE INDIAN EXPERIENCE WITH THE BANGALORE INTERNATIONAL AIRPORT LIMITED.
DR.KALPANA GOPALAN IAS. PH.D.(IIM-B)
PRINCIPAL SECRETARY TO THE GOVT. OF KARNATAKA
MANAGING DIRECTOR, KARNATAKA STATE HANDICRAFTS DEVELOPMENT CORPN. MANAGING DIRECTOR, KARNATAKA PUBLIC LANDS CORPN.
VISITING PROFESSOR (P), INSTITUTE OF SOCIAL & ECONOMIC CHANGE.
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IAS 1987
?????
IIMB
2007
AGENDA
RESEARCH OBJECTIVE
MOTIVATION
OVERVIEW OF LITERATURE, CRITIQUE AND NEED FOR RESEARCH.
BRIDGING THE GAP: QUESTIONS; FRAMEWORK; PROPOSITIONS;METHODS
THE CASE: THE DECISION STORIES
OBSERVATIONS AND LESSONS4/22/2013 3KALPANA GOPALAN
BANGALORE INTERNATIONAL AIRPORTKEMPEGOWDA INTERNATIONAL AIRPORT
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BENGALURU INTERNATIONAL AIRPORT
RESEARCH OBJECTIVE
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RESEARCH OBJECTIVE
To address a critical research gap: Inadequacy ofscholarship on the detailed process of decisionmaking in a real life scenario using the single casestudy of the Bangalore International Airport
MOTIVATION
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IMPORTANCE OF INFRASTRUCTURE & ROLE OF PPPS
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PPPs attempted by national and sub-national govts in India: airports, power, roads
Poor investment climate, lack of an enabling institutional framework, high risks, insufficient capacity in bureaucracy & polity, erosion of public confidence
Essential to draw lessons from PPP experience to enhance preparedness and streamline processes to manage risks and create an enabling policy climate
Significance of research for policy practice
OVERVIEW OF THE LITERATURE
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CONCEPTUAL JOURNALISM
LOCATING OUR RESEARCH
PUBLIC POLICY
POLICY
POLICY DESIGN
EMPIRICAL
DEVELOPINGCOUNTRY
OURRESEARCH
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PPP LITERATURE
ORG.THEORY FINANCE/LAWECONOMICSCASE STUDIES
RESEARCH QUESTIONS
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WHAT SHOULD PUBLIC POLICYMAKERS LEARN TO EXPECTWHEN THEY UNDERTAKE PPPS IN THE INDIAN CONTEXT?
HOW DO WE ENHANCE OUR PREPAREDNESS TOIMPLEMENT FUTURE PPPS AND TO EXECUTE EFFECTIVEPPPS IN INDIA?
WHAT GOVERNANCE AND ORGANIZATION DESIGNELEMENTS CAN WE USE TO ACHIEVE PUBLIC INTERESTAND PRIVATE EFFICIENCY IN A PPP IN THE INDIANCONTEXT?
THE FRAMEWORK
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AN INTEGRATIVE MULTI-DISCIPLINARY THEMATICFRAMEWORK
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Boyer , Methdological Precedet: (Abdel-Aziz & Russel 2001; Parker & Hartley 2001)
Process
GovernancePartnership
What Actually Happens?Decisionmaking in Practice
Micro Managerial Challenges
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PROPOSITION 1
The Implementation of Public Private Partnerships Requires a Shift of Focus : from Project to Process.
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PROPOSITION 2
Public Private Partnerships require a second Shift of Focus-from the Firm (SPV) to the Partnership, that is,
the partnership becomes the institution
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PROPOSITION 3
Public Private Partnerships require a Broadening of Our Notion of Governance-from the Dyadic Engagement between the Public and Private Partners and Intra-
organizational Governance Mechanisms to Domain-based Governance, Engagement with Society and Citizenry and Inter-organizational Mechanisms
RESEARCH METHOD & DESIGN
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CHOICE OF BIALSnowball/chain selection (Miles & Huberman 1994)
Critical case: Among the earliest PPPs in india; first PPP in Karnataka, first PPP in Civil Aviation sector;first Greenfield project; model/ forerunner for future PPPs (Miles & Huberman 1994; Yin 2003)
Typical case: displays distinctive characteristics of an infrastructure PPP; elements common to transnational PPPs; issues find reflections in literature (Miles & Huberman 1994;Yin 2003)
Politically significant case: the politics of infrastructure (Menon 2005a,2005b; Miles & Huberman 1994;Yin 2003)
Socially significant case: Bangalore as contested terrain (Pani 1998; Heitzman1999;Benjamin 2000; Nair 2000; Kamath 2006)
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MULTILAYERED ANALYSIS
INDIA
BIAL
KARNATAKABANGALORE
Methodological precedent: Allison 1971Method: Embedded agency: (Yin 2003; Greenwood & Suddaby 2006)
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1989-2009
THE BIAL DRAMA
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SELECTION OF AIRPORT SITE
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THE PPP DECISION
IDEAS OF
‘APPROPRIATENESS’RISK TRANSFERCOSTS
Where pressures to outsource or in source conflict (Parker & Hartley2003)
Where pre-sentiation is difficult owing to a complex &uncertain environment ( Crocker & Masten 1996)
Where quality of the service can be well-specified but quality of theconstruction cannot be (Hart 2003)
In situations of ex-ante competition, scarce skills, innovativethinking, economies of scale, measurability of quality (de Bettignies &Ross 2004)
Projects with long term planning horizons, requiremanagement of construction & delivery risks, & capital intensive(UK Treasury 1993)
Sectors such as roads & bridges (IPPR 2001)
If costs of risk transfer are lower than potential benefits (OECD 2008)
Where financial cost is lower than the public sector comparator(UK Treasury 2005)
Where the infrastructure/service is not a core activity (Grimsey &Lewis 2004)
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THE CASE: A CONSTELLATION OF INFLUENCES
SMK
ECONOMICREFORM
REGIONALPOLITICS
WB STRATEGY
GROWTH OFIT
BRAND
BANGALORE
DEMANDS OFURBAN
MIDDLECLASS
ICONIZATIONOF CHIEF
MINISTERS
COMPETITIONFOR
INVESTMENTS
LONG-PENDING
DEMAND FORAIRPORT
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(Rajan & Marwah 1998;Heitzman 1999;Nair 2000;Benjamin 2000;Saxenian2002;Menon 2005;Rudolph & Rudolph 2006;Mukherji 2007;Kamath 2006; Ahluwalia 2007; Kirk 2007;Bhagwati 2007;Chen & Warren 2008)
THE BEGINNINGS
1960s: Civil enclave in HAL
Congestion ; disturbance to test flight activity; public safety; opening the skies
1989:New airport mooted by Valluri report: 4 options
HAL’s strong objection , lack of space & state government offer of land clinched the decision
Political/Industry/Media support
THE PROCESSSite Selection Committee: 3/1991 to 6/1992; 6 meetings + Special Core Group Meeting on IASM; Technical , Government & Industry representatives
Process: Site Selection Norms, NAA Proforma, Site Identification by State Government, Spot Inspection, Aerial survey by Air force Captain,
Documents & Reports: NAA Comparative Analysis Report, Perspective Plan of Indian Airlines, Cargo at Bangalore Air Cargo Complex, Special Core Group IASM Report
Choices: North of Malur, Kengeri-I, Kengeri-II, Vijayapura, Yelahanka, South of Devanahalli, Mysore Road near Bidadi
Criteria: Physical, Operational , Safety & Land Availability
Vijayapura (55 km) vs. Devanahalli (30 km). Distance Determined the Decision
THE HAL CONTROVERSY
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THE FALLOUT
Save HAL Campaign
Was the Choice Casual?
Why did the Controversy Break Out ?
Why did the Campaign Fail?
Contractual vs. Political Governance
FINDINGS
SSC: Processually Correct: Validity of Proposition 1
Processual Factors Overtaken by Domain Factors: Proposition 3
Appreciation of Operational & Administrative Constraints
Technical over People Issues; Separation of Site Selection & Implementation Stages
Constancy of Change: HAL Campaign & GOI
Limitations of Ad Hoc Mechanisms
LEARNINGSParticipation: attention to stakeholder needs; creating public awareness; need for ongoing advocacy to keep pace with shifts in public sentiment; media management
Planning: far reaching impact of public decisions; anticipation in long gestation projects; adapting executive action to changing socio -economic needs
Partnering: attention to neglected aspects; intra agency relations with employees; continuous engagement between union and state govts to avoid blame boomerangs; beyond proposition 2
Shift in Governance: mandate of contractual over popular governance
FINDING A PARTNER
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THE PROCESS
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• GOI Approval• KSIIDC nodal
agency• 15.04.1999 mtg
MOU
• Appt of IL&FS
Steerig Ctte
• 2 stage process• Open competion• 17 EOIs
EOI
• 7 bidders• Several dropouts
RFP
• 2 bidders• External Expertise
PP
• GMP/State Support • 4 levels of scrutiny
EC
• Siemens selected
• Cabinet approval
NT
• Post-contract deviations
SHA
Steering Committee assisted by EC & NT: 15 meetings; 33 months; 03.05.1999 - 23.01.2002
Lengthy process with policy, organizational, capacity, political, time constraints
Lack of a road map & planning
Bidderdriven changes:state support, intra-consortia awards; indicted by JHC
Iterative loopy process waiting on critical decisions
BID VS. PROJECT : COSTS, OVERRUNS, DEVIATIONS
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Bid=1128 crores
GMP=1075-1150 crores
Financial Close=1411.79 crores
After Redesign=1930.29crores
After IPE=2470.29
FINDINGS
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Financial consequences of decisionmaking
Spotlight on constraints
Poor planning: delay & vendor driven
Substantial search & transaction costs for expertise
Disconnect between bidding & implementation
Technical/Financial vs. People focus
Selective inclusion, opaqueness & complexity
Multilithic state: Intra agency partnering relations
LEARNINGS
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Criticality of Planning
Enabling policy framework instead of adhoc iterative approach
Citizen centric Participation
Customer focus
Accountability mechanisms and transparency
Capacity building
Proactive role of state in a vital step in PPP formation
LAND ASSEMBLY & ACQUISITION
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4276 acres (4009) , 12 villages,1544 land losers; Govt (400), Pvt (2593), Forest (1394) Gramthana (30)
KIADB: 1994-2002 & Cabinet approval
Acquisition award : 6 las per acre
Relief & Rehabilitation well managed
PROFILE & PROCESS
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2500 acres:SSC report: 1992
3500 acres: Karnataka Cabinet Decision: 1996
4009 acres:Karnataka Cabinet Decision:2004
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Land Grabbing in guise of airport
No rationale for increase
Heathrow: 6 times capacity , 35% less area
State contribution: 30 crores >> 175 crore
150 cr HUDCO loan repayable by GOK
Present value 10000 crore (JHC, 2009)
FINDINGS
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Consequences of poor planning
Lack of a rudimentary road map: delay and piecemeal process
Equity implications: Disconnect between higher and field level agencies
Financial consequences: slow somersaults in major decisions
Socio-economic consequences: development and its downside
LEARNINGS
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Focus on ethics
No alternative to public participation
Equity in policy design: revenue stream for landlosers
Need for long range and imaginative planning
OBSERVATIONS & LESSONS
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1 2
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Thank you
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Snowball Interviews to Select Case
Jan 09 #10; 55 pgs
Preliminary/ Opportunistic /Systematic Data CollectionApr - May 09 ; Jan-Apr 10 ; Apr ‘10 onwards2000;45000
Timeline of Events
Jun - Jul 09 444 pgs
Aug 09; 15 pgs
The BIAL Story
Design and Method
Sept - Oct 09
Nov- Dec 09
Literature Review
......and miles to go
44
Research Proposal
Jan 2010
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drifting purposivelyIIMB INTL PUBLIC POLICY CONF: AUG 2010IIMB RISK MGMT PROGRAM: SEPT 2010(PRACTITIONERS)IISC INTL INFRASTRUCTURE CONF: OCT 2010 (2).CENTRE FOR ETHICAL GOVERNANCE : NOV 2010 (IAS OFFICERS)WARWICK UNIV CRITICAL GOVERNANCE : DEC 2010.UNIV. OF SALERNO , ITALY, MAR 2011UNITED NATIONS, GLOBAL ETHICS FORUM , GENEVA, JUN 2011GLOBAL BUSINESS CONF, SINGAPORE MGMT UNIV, JUL 2011 IFS OFFICERS PROGRAM , IIMB, SEPT 2008 & 2009PGP PROGRAM, IIMB: NOV 2009BHAVAN’S JOURNAL OF INTL BUSINESSIIMB ALUMNUS MAGAZINE.GLOBAL ETHICS FORUM DIGITAL LIBRARY.‘GLOBUS’CHAMBER OF COMMERCE MAGAZINE, ITALY.