2009年-世界发展银行全球_Public-Private_Partnerships_to_Reform_Urban_Water_Utilities_in_Western_and_Central_Africa_4页_588kb

Summary of Public-Private Partnerships to Reform Urban Water Utilities in Western and Central Africa

Core Content

Public-private partnerships (PPPs) have been widely experimented with in Western and Central Africa to reform urban water utilities. The region has a long history of PPPs, with Côte d'Ivoire's successful model dating back to 1959. Over the past two decades, 15 out of 23 countries in the region have tried PPPs, and this note focuses on 11 case studies, including six with detailed performance indicators.

Main PPP Models and Their Applications

The following are the main types of PPP arrangements observed in the region:

• Long-term concessions: Transfer technical, operational, commercial, and financial risks to private operators, typically for combined power and water utilities.
• Medium-term aftermages: Combine private operation with shared commercial risk and public financing for infrastructure, mostly for water supply services.
• Short-term contracts: Applied to both combined power and water and water-only utilities.
• Performance-based service contracts: Aimed at improving the commercial and financial operations of public water utilities.

Successes and Failures

Successes

Five PPP projects are considered successful, with notable improvements in access, reliability, operational efficiency, financial sustainability, and affordability. These include:

• Côte d'Ivoire (Aff.): Active concession with significant efficiency gains.
• Senegal (Aff.): Active concession with good service performance.
• Gabon (Conc.): Active concession with improved reliability and quality.
• Burkina Faso (SC): Active service contract with positive outcomes.
• Niger (Aff.): Active aftermage with promising performance.

Mixed Outcomes

Three PPPs showed mixed results:

• Guinea (Aff.): Completed aftermage with improvements in access and service quality, but returned to public management.
• Mali (Conc.): Terminated concession with some positive outcomes.
• Cape Verde (Conc.): Active concession, but the contract was renegotiated to reduce private operator risks.

Failures

Five PPPs failed to significantly expand access or improve efficiency:

• CAR (Aff.): Completed aftermage with limited impact.
• The Gambia (Aff.): Terminated aftermage.
• Chad (MC): Terminated management contract.
• Guinea Bissau (MC): Completed management contract.
• Sao Tome (MC): Completed management contract.

Too Early to Judge

Two PPPs in Ghana and Cameroon are still active, and their performance is not yet fully assessed.

Key Impacts of Successful PPPs

• Expanded access: Successful PPPs contributed to the expansion of piped water access, particularly through residential connections. For example, Côte d'Ivoire extended services to three million more people between 1990 and 2006.
• Improved reliability: Private operators in Côte d'Ivoire, Gabon, Senegal, and Niger provide 24/7 service, enhancing water quality and meeting national standards.
• Operational efficiency: Private operators achieved efficiency levels comparable to those in Western Europe and North America, reducing water losses and improving productivity.
• Financial sustainability: Tariffs decreased in constant terms due to efficiency gains and lower financing costs. Successful PPPs also supported social connection programs for low-income households, increasing revenue and fixed cost absorption.

Lessons Learned

• Sector reform is essential: Successful PPPs were part of broader sector reforms with clear policies and government commitment.
• Regulatory framework matters: Regulation by contract was more effective than independent regulation, which often led to increased regulatory risks.
• Aftermage model is more successful: These models allow for gradual capital cost recovery and provide flexibility, supported by donor funds.
• Social connection programs: These helped expand customer bases and improve financial sustainability, though not all PPPs included them.
• Private capital inflow limited: Local markets are not yet able to provide long-term debt in local currencies, limiting private capital inflow.

Looking Forward

• Increased competition: New operators from Portugal, the Netherlands, and South Africa are entering the PPP market, indicating a shift toward greater competition.
• First South-South PPP: Cameroon's PPP with a public entity from Morocco marks the first true South-South partnership in the region.
• Support for MDGs: The region's PPP experience is relevant to achieving the Millennium Development Goals, particularly in improving access to safe water.

Conclusion

PPPs in Western and Central Africa have shown varying degrees of success in reforming urban water utilities. While some have significantly improved service quality and access, others have failed or had mixed outcomes. The region's experience highlights the importance of strong policy frameworks, regulatory mechanisms, and the role of the aftermage model in achieving sustainable improvements. The future of PPPs in the region looks promising with greater competition and the potential for more inclusive and efficient water services.