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Leveraging Alternative Finance & Delivery for Water Resource Projects
Jill JamiesonManaging DirectorJones Lang LaSalle
Western Water RoundtableDecember 13, 2016Las Vegas, NV
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Agenda
• Bridging the Infrastructure Gap• Overview of Alternative Finance and
Delivery Structures• Case studies
- Grand Prairie Irrigation Project (Aquifer and Irrigation)
- Fargo-Moorhead (Flood Risk Management)
• Discussion
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Global Infrastructure Market
Global Infrastructure Funding Deficit
• Global infrastructure investment needs by 2030 estimated at $57-$67 Trillion (OECD/WEF)
• US infrastructure needs estimated at over $7 Trillion (by 2030), $3.4T needed by 2020 (to keep pace with GDP).
• Over 50% of these investments cannot be funded by public authorities (fiscal restraints, budget limitations, debt ceilings, repayment capacity, etc.).
• Standard & Poor’s estimates that the majority of public infrastructure spending will go to energy and transportation, putting other sectors at greater risk.
• Within these constraints, governments and public agencies 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.
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America’s Infrastructure Needs
Bridges C+ Dams D Drinking Water D
Energy D+ Hazardous Waste D Inland Waterways D-
Levees D- Ports C Parks C-
Rail C+ Roads D+ Schools D
Transit D+ Wastewater D Other ??
ASCE Report Card GPA: D+
• ASCE report card does not address all infrastructure needs (i.e., public buildings, university infrastructure, prisons, technology, etc.), nor does it anticipate changing regulatory requirements.
• At D-, water resources register the lowest rating of all infrastructure groups• Public authorities simply do not have the debt capacity and funding sources to address the nation’s
growing infrastructure needs• Even with the promise of a Trillion dollar investment in infrastructure by incoming Administration, it is highly
unlikely that this funding will come through traditional channels.
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Public-Private Partnerships
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Public-Private Partnerships (P3)
P3s are typically long-term contractual arrangements between the public sector and a private sector entity for the delivery of public works and/or services, with risks shared between both parties.
PRIMARY BENEFITS OF P3 APPROACH Accelerate delivery to advance public benefits; Provide greater cost and schedule certainty; Leverage private sector innovation; Ensure asset life-cycle management; Minimize cost impact on end-users; Optimize risk allocation; and Maximize public benefits by Incentivizing innovative asset
uses and monetization.
Extent of Ownership and Risk Transfer to the Private Sector
Low HighExtent of Private Sector Financing
Public-Private-Partnerships
Infrastructure Delivery Spectrum of OptionsTraditional Delivery
Works & Service Contracts(DBB, CMAR, PDB, DB)
Privatization
Performance Contracts(ESPC, O&M, peer partnering, etc,)
Divestiture (Sale, Sale-leaseback, etc.)
Concessions(DBFOM, BOT, etc.)
Lease-like Agreements (LDO, DBOM, Lease-Backs )
• Federal, state and local governments have limited financial resources to devote to capital and operational expenditures
• In post-earmark Washington, intense competition for scarce federal funding
• Protracted appropriations delay delivery, defer benefits, and exponentially increase costs
• Public authorities seeking alternative finance and delivery approaches for water resource projects
To address the growing funding shortfall, public authorities are turning to a wide variety of alternative finance and delivery mechanisms for water resource projects, including P3.
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U.S. Federal, State, & Municipal P3
“While P3 cannot eliminate the need for government spending on infrastructure, we can help meet our nation’s infrastructure needs by expanding the sources of investment and using those dollars, whether public or private, as effectively as possible to advance the public’s interest.” – US Treasury
Federal • DOT has leveraged P3 for many projects, including over $28 Billion in FHWA
projects alone• DOE is utilizing P3 for energy infrastructure, including programs for renewable
energy, nuclear safety and hydrogen infrastructure • DOD has track-record of utilizing P3 to address military housing, which under the
traditional model, would have cost taxpayers $25 billion over 20 years. Let $7B in PPP contracts for renewable energy. Working on P4 for shared services.
• CBP is utilizing P3 to address increased demands for facilities and renovations, including facilities agreements in Houston, Dallas, and Miami
• GSA has used P3 for years for government facilities• USACE is now engaging in P3 for water resource projects (WRRDA 2014)
State / Local• Majority of US states have adopted P3 enabling legislation in multiple sectors• S&P predicts US P3 market to become market leader
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P3 Defined
Public Partner• Specifies requirements/standards
• Owns assets / public service
Private Partner• Build facilities• Provide services
• Infrastructure and services
• Payments to Public Partner
Rights Users / Public
Federal Sponsor
P3/P4Contract
Non-federal Sponsors
Equity Investors
Creditors
Design / Build
O&M
Usage Fees
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Project Screening
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P3/P4 Transaction StructuringTransaction structuring should respond to a systematic process designed at ensuring that the sources of value generation are identified and maximized for each individual project.
Other considerations:
• Bundling• Ring-fencing
• Project Size and Complexity• Benefits from innovation?
• Stakeholder support• Ability to specify output standards
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P3 Compensation Models
P3 is not “free money” and investments and costs need to be repaid:
Challenge: To identify revenue sources that create “bankable” and financially viable projects
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Potential Compensation Structures
CapitalInvestments
Operating Expenditures
Tariffs paid by Users to the Concessionaire
Infrastructure Delivery Date
User Charge based PPP
· Private Sector bears construction AND demand risk· Revenue levels dependent on user payments
Private Sector Investment
Revenue from User Payments
CapitalInvestments
Operating Expenditures
Revenue from Availability Payments
Payments from Public Authority to Concessionaire
Infrastructure Delivery Date
Performance-based PPP
· Private Sector bears construction AND performance risk· Public authorities make regular payments (calculated to cover investor
costs) which are adjusted according to infrastructure availability and service levels.
· Deductions for availability and performance short falls.
Private Sector Investment
Minimum Revenue Guarantee Availability Payment
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Standard P3 Cash Flow Waterfall
• Affordability issues for water resource projects is a critical consideration. Many projects may require Viability Gap Funding (VGF)
• Structuring of payment mechanism is also a key consideration in P3 projects
• Monetization may off-set some costs, but unlikely that ancillary revenues will be sufficient to pay for entire project
• Key to successful P3 is to commit future revenues for project specific purposes
Availability Payment and/or capital
subsidiesUser Charge(s)
Public Sponsor
Ancillary Revenues(if any)
ButtonPrivate Partner
Availability & Performance Deductions
O&M Expenditures
Debt Service
Reserves
Income Taxes
Profit
REV
ENUES
EXPEN
DITURES
Debt Service Coverage Ratio
Escrow Account
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Funding & Financing Alternatives
Funding Sources Financing Tools
Compensation & Revenue Sources
· Usage fees [tolls, tariffs, etc.] · Budget-based performance payments
(i.e., availability payments) · Value capture revenues · Tax proceeds and assessments
– Property Tax Assessments – Special Developer Assessments – Tax Increment Funding – Hypothecated/Dedicated Taxes
· License fees · Commercial / ancillary revenues
Public Subsidies & Support
· Upfront capital contributions · Public grants · Tax Credits · In-kind contributions
Standard Credit Facilities
· Bonds · Bank Debt · Special Assessment Bonds · Mezzanine Financing / Quasi-Equity
Concessionary and Alt. Finance
· Federal Credit Programs (WIFIA, TIFIA, etc.)
· State Infrastructure Banks · Tax-exempt Private Activity Bonds · Other (i.e., EB-5 financing) · State Infrastructure Banks
Equity
· Sponsor / Operator Equity · Non-Sponsor Private Equity · Public Equity
Standard P3/P4 Funding & Financing Sources
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Case Studies
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GRAND PRAIRIE IRRIGATION PROJECT
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Case Study : Grand Prairie Irrigation Project• Initially authorized in 1950, the Grand Prairie Region
Demonstration Project aims to provide water security for drinking water, industrial and agricultural use, as well as address depletion and resiliency of the alluvial and Sparta aquifers which underlie a seven state region.
• Key project features: major pumping station on the White River; conveyance channels to deliver to water depleted areas; flood management; and other environmental restoration and conservation measures.
• Project benefits: provides sustainable water sources at a more affordable and predictable price; slows depletion of aquifer; water security for farming industry
• Key Public Sponsors: United States Army Corps of Engineers (USACE) is Federal
sponsor. The State of Arkansas, acting through its Arkansas Natural
Resources Commission (ANRC), is the non-Federal sponsor. White River Irrigation District (WRID) is a legal entity
created for the purpose of operating and maintaining the Project upon completion.
Grand Prairie Area Demo ProjectFederal Investment-to-date $137 millionNon-Federal Spend-to-date $75 million
Total investment-to-date $212 million Project Cost Estimates Infra and Distribution System $433.5 million On-Farm Work $106 million Sunk PED $11.5 million Est. Total Project Cost $551 millionEstimated completion date (at current funding levels) 34.5 years
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Grand Prairie Irrigation Project – P3 ScreeningCompeting priorities make a significant increase in federal appropriations for this Project unlikely, so Project sponsors are investigating alternative finance and delivery opportunities with the aim of accelerating Project delivery and protecting existing assets and investments to-date. Project appears to meet P3 screening criteria, including the following: Project Size & Complexity Criticality
Vital to economic activity Urgency of implementation System integration
Significant potential for revenue generation Environmental and Legal Clearances Potential for scheduling efficiencies Project would benefit from innovation and technology Potential for life-cycle cost savings through bundling Network completion
Federal SponsorUSACE
Non-Federal SponsorState of Arkansas (ANRC)
Contracting AuthorityWhite River Irrigation District
P3 Agreement
Private Partner(Quasi-Governmental or Private
Special Purpose Entity)
Creditors / Lenders
Financial Sponsors (Equity)
Design-Build(Construction)
Operations & Maintenance
Insurance and Reserves
Performance Securities
Conduit Tax-Exempt Bond Issuer
PPA
Debt Financing
Equity Financing
EPC Contract
Operating Contract
Grand Prairie Region Demonstration ProjectAlternative Finance & Delivery Structure
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Grand Prairie Tax-Exempt Structure
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Overview of P3 Development Process
• January – June 2016 – Project Review / Initial P3 Transaction Structuring
• High-level viability assessment undertaken • P3 options analysis• Initial transaction structuring and risk matrix
• June 6, 2016 – Request for Information (RFI) Distribution Began
• Launch of RFI - Process heavily marketed in media and industry groups
• Over 50 companies requested RFI and expressed interest in project as P3
• June 28-30 2016 – Industry Forum and Site Tour• Participation of 35 companies attended industry
forum
• Ongoing meeting requests show sustained interest
• July 25, 2016 – RFI Response Submissions • 20 responses received from 22 companies
Project sponsors are currently working with State and Federal authorities to create enabling framework for the project, including state-level legislation, credit-backstops, regulatory framework and Viability Gap Funding
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Key Takeaways from RFI Responses
1. Solid industry interest in GPIP as a P3, if structured appropriately2. Industry unwilling to take demand risk
• Uncertainty related to water usage by farmers, availability of substitute water sources, water pricing risk, etc. generates excessive demand risk
• P3 only viable under an availability/guaranteed off-take arrangement or under a Minimum Revenue Guarantee (MRG)
• Need for viable project credit-backstop requires ANRC involvement
3. Need to better define governance structure:• Role of diverse parties (USACE, WRID, ANRC) over term of agreement• Counterpart risk• Right of way acquisitions completed ahead of P3 project critical path
4. Other:• Most other comments relate to basic transaction structuring issues that
are easily addressed, such as:• Clarifying scope of work• Brownfield transfer issues• Definition of performance standards
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Grand Prairie Irrigation Project – Financial Modeling
Funding Shortfall
Potential Profit
Note: Values are NOT in Net Present Value. These figures are estimates/provides an order of magnitude. Figures meant for discussion purposes only.
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Alternative Compensation Structure
USACE P3 Demonstration Project
FARGO-MOORHEAD DIVERSION PROJECT
US
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Case Study: Fargo Moorhead Flood Risk Management)
• Authorized flood risk management project• Strong local sponsor support:
Local sponsor has leveraged local funding sources (local sales taxes, state funding, and special assessment district)
Local sponsor willing to explore new delivery options to accelerate benefits and minimize appropriations and delivery risk.
Alternative finance and delivery options developed by USACE, leveraging WRRDA 2014 (section 1014)
Project is well-advanced, but awaiting OMB approval of funding for new start.
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Fargo – P3 Benefits• Transaction aims to secure best Value-for-Money in the delivery of infrastructure
and services. Reduced total cost by some $400 million while increasing public benefits by $1.9B
• Accelerates delivery by at least 8 years and reduces Federal funding by $400M
• Split Delivery model allows effective risk transfer to local sponsors, who in turn pass those risks on to private partner.
USACE(Federal)
Equity
Local Sponsors(Diversion Authority)
Private Partner
DBFOMAgreement
Debt
Reserves Design-BuildInsurance
O&M
Requirements
Land
Availability Payments
Performance Standards
Oversight
BondsTaxes
State Appropriations
PPA
Technical Reviews & Permitting
Reimbursement of Advance Funding
Private Sponsors
USACE(Federal)
Local Sponsors(Diversion Authority)
Provide GapFinancingPPAFederal
Appropriations
DBAgreement
Requirements
Issuing Permits
Payments
Performance Standards
Oversight
Private Partner
Design-Build
Provide LandAdminister Reviews
Delivery of Infrastructure
Delivery of Infrastructure
Crossover of O&M Provision
Diversion ChannelWRRDA 1014
Southern EmbankmentWRRDA 5014
Assessments
Creditors
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Fargo – P3 Benefits
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Conclusion
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Conclusion & Discussion
• P3 appears to be the “new normal”. Alternative finance and delivery models are playing an increasing important role for most infrastructure projects, including water resources.
• Significant capital is available for well-structured P3 projects; but capital is not the entire value proposition.
• Water resource projects have some unique characteristics that distinguish them from other sectors (such as transportation), which need to be understood as you seek to structure transactions.
• Federal resources are available to assist in thinking through alternative finance and delivery structures.
COPYRIGHT © JONES LANG LASALLE IP, INC. 2015
Thank you
Jill JamiesonManaging DirectorJones Lang LaSalle Americas202.719.5588 [email protected]