Download pdf - The USD 1.1 billion Pennsylvania Rapid PROJECT ... and maintained at an average cost of $1.6 million each, versus $2 million each if completed by PennDOT. The bridges selected as eligible

PROJECT HIGHLIGHTS

•Thefirstmulti-assetPPPtobeundertakenintheUSusinga“bundled”approach;

•ThefirstPPPtransactioninthestateofPennsylvania;

•ThelargestroadwayprojectinPennsylvania’shistory;

•Thebundlingofassetsisexpectedtoreducethetotalcostoftheprojectby20%;

•Constructionwilloccuratamuchfasterratethanwhatwouldhavebeenachievedusingatraditionalprocurementprogram;

•ThelargesteverPrivateActivityBond(PAB)issuanceinthehistoryoftheFederalPABprogram(attimeofissuance)(seetheFinancialBreakdownsectionofthisnotefordetails);

•US$721.5millionparvaluerepresentsthelargesteverallocatedPABissuanceforaPPPtransaction.

Image courtesy of Plenary Group (https://plenarygroup.com)

August 2017

PROJECT OVERVIEW

The USD 1.1 billion Pennsylvania Rapid Bridge Replacement (RBR) Project is the first multi-asset public-private partnership (PPP) project to be undertaken in the US, using a “bundled” contract approach to replace 558 structurally deficient (SD) bridges across Pennsylvania.

TheprojectisbeingdeliveredasaDesign-Build-Finance-Operate-Maintain(DBFOM),availabilitypayment,PPPconcession,betweenthePennsylvaniaDepartmentofTransportation(PennDOT)andthePlenaryWalshKeystonePartners(PWKP)consortium.TheconsortiumwasawardedthecontractinOctober2014.

TheRBRProjectcouldhavesignificantapplicationsinotherUSstates,helpingtoboostthegradeofAmerica’sinfrastructureandaddressthebacklogincivilinfrastructuremaintenance.Pennsylvaniahasover4,500SDbridges,thesecondhighestfigureinthecountryafterIowa.Roughly20%ofPennsylvania’sbridgesareSD,whilethenationalaverageis9.1%.TheRBRProjectwillmakeasubstantialcontributiontoreducingthelargebacklogofSDbridgesinthestate.

PWKPismanagingthefinancing,designandconstructionofthereplacementbridgesandwillthenberesponsiblefortheirmaintenancefor25yearsafterconstruction.Constructionisexpectedtotakeapproximatelyfouryearsfromcommercialclose.

Theprojectwillinvolvethefulldemolitionandreplacementofall558replacementbridges,whichareprimarilysingleandmulti-spanbridgesonsmallerstatehighways,manylocatedinruralareas.Thebridgesintheprojectareofasimilarsizeanddesign,allowingforprefabrication,massproduction,equipmentreutilisationandstandardisation.

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SHOWCASE PROJECT: Pennsylvania Rapid Bridge Replacement Project

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Multi-assetPPPsarealreadybeingusedinmanyjurisdictionstoreplaceandmaintainexistingcivilinfrastructure,suchasstreetlightingandschools.ManyoftheseassetshavenottraditionallybeenconsideredsuitableforPPPdeliveryduetotheirinabilitytoprovidevalueformoneyasanindividualassetorasmallbundle.Bybundlingmultipleassetsintoasingleprojectonalargerscale,investorshavetheopportunitytoparticipateinabroaderrangeofinfrastructuresectors,suchaslocalroadandwaterinfrastructure,andcommunityfacilities.

WHY USE THE PPP APPROACH?

TheCommonwealthofPennsylvaniadecidedtotakeadvantageoftwolegislativechangestobringitsSDbridgesintoastateofgoodrepair:Act88(2012),whichauthorisespublic-privatetransportationprojectsinthestate,andAct89(2013),whichincreasedannualstatehighwayfundingbyrestructuringthestate’sgastaxandincreasingavarietyoffees.ThereasonsforusingaPPPapproachasopposedtoatraditionalprocurementmethodareoutlinedbelow.

Key Advantages:

•Costreductionof20%comparedtooriginalPennDOTestimatesusingatraditionalprocurementmethod;

•EstimateddateofcompletionforallbridgesisyearsinadvanceofPennDOT’soriginalestimateusinganon-PPPapproach;

•Accesstoinnovativedesignsolutions,suchasprefabricationofstandardisedconstructionmaterials;

•Greaterincentivestodelivertheprojectontimeandwithinbudget;

•Efficientservicedeliverylinkedtoavailabilityandmilestonepayments;

•Minimisationoftransactioncoststhroughasingleprocurementprocess;and

•Consistentriskallocation,enablingmoreefficientcontractadministrationandallocationofresources.

Bundlingthebridgestogetherinamulti-assetPPPcontractisexpectedtoreducethetotalcostofreplacingthebridgesby20%,andatarateofreplacementmanyyearsinadvanceofwhatthestatewouldhavebeenabletoachieveunderanon-PPPapproach.PennDOTestimatedthatitwouldtakeupto20yearstoreplaceallofthebridgesusingatraditionalprocurementandconstructionprogram.Thebatchingoftheprojectswillallowthebridgestobereplacedandmaintainedatanaveragecostof$1.6millioneach,versus$2millioneachifcompletedbyPennDOT.

Thebridgesselectedaseligiblefortheprojecthavesimilarcharacteristics;mostimportantly,theyarerelativelysmallandcanbedesignedandconstructedtostandardsizes.Thesimilarityofthebridgesallowsforstreamlineddesign,prefabrication(massproduction)ofstandardisedcomponentssuchasbeams,andthereplacementscanbedonerelativelyquickly.AllofthesefactorsmakebundlingtheprojectsasonePPPcontractthemostefficientandcosteffectivewaytodeliverthebridgeprojects.

PROJECT TIMELINE

Key dates in the procurement timeline are shown below:

December 2013 RequestsForQualification(RFQ)outforPennsylvaniabridgesPPP.

January 2014RFQdeadlineextensionforPennsylvaniabridgesPPP.

March 2014FourshortlistedonPennsylvaniabridgesPPP.

July 2014USDepartmentofTransportationapprovesPABsforPennsylvaniabridgesPPP.

October 2014 Plenary-WalshteamwinsPennsylvaniabridgesPPP.

January 2015 PlenaryreachescommercialcloseonPennsylvaniabridgesPPP.

March 2015 PlenaryandWalshreachfinancialcloseonPennsylvaniabridgesPPP.

June 2017 RBRProject’s200thbridgehasjustbeencompleted.



CONTRACTUAL STRUCTURE

Thediagrambelowillustratesthemaincontractualcomponentsoftheprojectstructure.

FINANCE BREAKDOWN

SOURCE OF FUNDS AMOUNT

Tax-exempt PABs US$793million

Equity US$58million

Milestone Payments US$224million

Availability Payments US$35million

TOTAL US$1.11 billion

Theprojectisfinancedthroughacombinationoftax-exemptPrivateActivityBonds(PABs),privateequity,milestonepayments,andavailabilitypayments.

PABsrefertotheapplicationoftaxexemptdebtinstrumentsforprivateinvestment,resultinginlowerinterestratesonthedebtandaccesstothelowercostofcapitalfromtheUStaxexemptbondmarket.

ThePABsforthePennsylvaniaRBRProjectwereallocatedbytheUSDepartmentofTransportation(USDOT),structuredandofferedbyPlenary,andreceivedaBBBinvestmentratingfromS&P.Thebondswereissuedintrancheswithmaturitiesrangingfrom4to28years,

andpricedwiththelowestyieldstomaturityofanyuninsuredBBBlevelPPPbondissuance(atthetimeofissuance),withrepaymentsourcedfrommilestoneandavailabilitypaymentsthroughoutthe25-yearoperatingtermbasedonachievementofrequiredassetperformancelevels.

Theequity providerswerePlenaryGroup(80%)andWalshGroup(20%).

Milestone PaymentswillbepaidbyPennDOTtoPWKPaccordingtoadefinedscheduleand,whilesubjecttodeductionsfornon-performance,arealsolinkedtotheachievementofprescribedlevelsofworkinplace.

TheAvailability Paymentsincludebothafixedelement(90%)andanindexedelement(10%)whichisindexedtotheConsumerPriceIndex(CPI)followingSubstantialProjectCompletion.MonthlyAvailabilityPaymentsarecalculatedbasedontheproportionalnumberofbridgestohaveachievedSubstantialCompletion,alongwithadeductionfactorduringtheconstructionphasetoincentivisefullProjectCompletion.AvailabilitypaymentsarepaidbyPennDOTtoPWKPandaresubjecttodeductionsforcertainnon-complianceasdefinedinthePublic-PrivateTransportationPartnershipAgreement(PPA)betweenPennDOTandPWKP,includinglaneclosures,lackofprescribedNBIS(NationalBridgeInspectionStandards)bridgeratings,etc.

Debt Issuer(PennsylvaniaEconomicDevelopmentAuthority)

Walsh Infrastructure Management

HDR

Walsh Construction Company & Granite Construction Company

Plenary Walsh Keystone Partners (Development Entity)

Equity Bonds

Design-BuildAgreement

DesignContract

Long-termMaintenanceAgreement

PennDotPaymentsProjectPartnership

Agreement

Private Activity Bondholders

Plenary Group & Walsh Investors



CONSTRUCTION

Morethan2,000SDbridgeswerescreenedbyPennDOTpriortoissuanceofthefinalRequestforProposals.Ahostoffactorswereconsidered,includingage,length,numberoflanes,andaveragedailytraffic,aswellasimpactonutilities,railroads,andawiderangeofpotentialenvironmentalimpacts.

WalshConstructionandGraniteConstructionJointVenture(Walsh/Granite)issubjecttospecificlanemaintenancerequirements,detourrequirementsandcalendarrestrictionspertainingtotheconstructionschedulingandlogisticsforeachreplacementbridge.Single-spanbridgeswillbeallowedtoclosefornomorethan75days,andmultiple-spanbridgesfornomorethan110days.

Thereplacementbridgeshavebeendividedintotwocategoriestofacilitatetheconstructionprocess:

•EarlyCompletionBridges(ECBs)

•RemainingEligibleBridges(REBs)

Thereare87ECBs,forwhichPennDOTprovidedTS&L(type,sizeandlocation)plans,governmentapprovals,RightofWay,andutilityclearances,tofacilitatethestartofconstructionin2015.PWKPhasfullresponsibilityforthedesign,coordinationofutilitywork,andacquiringthenecessarypermitsandgovernmentapprovalsforthe471REBs.

TheabovearrangementwaspossiblethankstoanEarlyDevelopmentAgreementbetweentheUSFederalHighwayAdministration(FHWA)andPennDOT,wherebytheFHWAgrantedapprovalunderSEP-151toPennDOTtoallowPWKPtoobtainthenecessarypermitsandapprovalsforeachREBintheproject.Ordinarily,itwouldbeprohibitedfortheconcessionaire,inthiscasePWKP,toberesponsibleforpermittingandapprovalsunderFHWA’sDesign-BuildContractingregulations.

Theconstructionplan,usingalocalapproach,envisionsthatthemajorityofbridgeconstructionworkwillbeperformedprimarilybyPennsylvania-basedsubcontractors.ThelargequantityofconstructionmaterialsrequiredfortheprojectwillalsobeprimarilysourcedfromsuppliersandfabricatorslocatedinandnearPennsylvania,providingalargeandsteadyvolumeofordersoverthethreeyearconstructionperiod.

Bridgedesignsandcomponentswillbestandardisedasmuchaspossibletofacilitateefficientdesignapprovals,permitting,materialsprocurement,andconstruction.

1 The US Federal Highway Administration (FHWA), a division of the US Department of Transportation, established the SEP-15 program to encourage tests and experimentation in procurements of federal aid transportation projects. Among the specific objectives of SEP-15 is the promotion of project management flexibility, innovation, improved efficiency, and timely project implementation. SEP-15 addresses, but is not limited to, four major components of project delivery: contracting; compliance with environmental requirements; right-of-way acquisition and project finance.

PennDOT •Snowandiceremovalandcontrol;

•Emergencyandincidentfirstresponse;

•Pavementstriping,reflectors,etc.;

•Asphaltmaintenance(afterfirst5years);

•Vegetationcontrolinrightofway(off-structure).

PWKP •MaintainallbridgesataconditionratingofNBIS7orgreater;

•Performbi-annualNBISinspectionsandpreventativemaintenance;

•Trafficmanagementduringmaintenanceactivities;

•Identifyandcorrectalldamagestotheprojectfromemergenciesorincidents;

•Controlanyvegetationgrowthonthebridgestructures;

•Maintainanystreamchannelswithin50feetofeachbridge;

•Maintainasphaltpavementconstructedaspartoftheworkfor5yearsfromSubstantialProjectCompletion;

•Provideacontacttoreceivepublicfeedbackonthebridges.

OPERATIONS AND MAINTENANCE

Themainongoingoperationalresponsibilitiesareasfollows:


APPENDIX

Details of the Project

TheRBRProjectisexpectedtocreateefficienciesthrougheconomiesofscale,innovationandoptimalriskallocationthatwillallowPennDOTtodelivermorebridgesfasterandatalowerwhole-lifecostthanispossiblewhenusingatraditional“design,bid,build”procurement.TheRBRProjectwillimprovetheconnectivityofPennsylvania’stransportationnetwork,whileminimisingtheimpactsonthetravellingpublic.Theimprovedconnectivity,includingtheremovalormodificationofcertainweightrestrictionsonsomereplacementbridges,willincreasetheefficiencyoffreightandcommercialmovements,whichwillbenefitthestate’seconomy.

Images courtesy of BATIC Institute

Map of ECBs to be replaced in Pennsylvania.

Map of REBs to be replaced in Pennsylvania.

The staff of the Global Infrastructure Hub (GI Hub) have prepared this summary of the Pennsylvania Rapid Bridge Replacement Project, and any opinions, findings and recommendations contained herein are not necessarily the views of the GI Hub Board of Directors, or the G20 member countries, or of other countries which are donors of the GI Hub. In this document, the GI Hub is not seeking to provide professional advice and, to the extent permitted by law, the GI Hub disclaims liability to any person or organisation in respect of anything done, or omitted to be done, in reliance upon information contained in this document.

Additional details on the Pennsylvania RBR Project can be found at:

http://www.penndot.gov/ProjectAndPrograms/p3forpa/Pages/Rapid-Bridge-Replacement-Project.aspx

http://parapidbridges.com

https://plenarygroup.com/projects/north-america/pennsylvania-rapid-bridge-replacement

Office Address Level 23, 68 Pitt St Sydney NSW 2000

Postal Address PO Box R1947, Royal Exchange Sydney NSW 1225 Australia

Tel +61 2 8315 5300 Email [email protected] www.gihub.org

http://www.penndot.gov/ProjectAndPrograms/p3forpa/Pages/Rapid-Bridge-Replacement-Project.aspx

http://parapidbridges.com

https://plenarygroup.com/projects/north-america/pennsylvania-rapid-bridge-replacement

https://www.gihub.org/

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