世界银行-在撒哈拉以南非洲扩大私营部门对道路资产管理的参与（英）-2022.2-47页_4mb

Summary of "Scaling Up Private Sector Participation in Road Asset Management in Sub-Saharan Africa"

Core Content

This document explores the potential of scaling up private sector participation in road asset management in Sub-Saharan Africa (SSA) through the modernization of Road Funds (RFs) and the implementation of Public-Private Partnerships (PPPs), particularly performance-based contracts (PBCs) and Road Restoration PPPs. It is part of the World Bank Group's Maximizing Finance for Development (MFD) framework, aiming to leverage private resources and solutions for sustainable infrastructure development.

Main Objectives

• To evaluate the performance of second-generation road funds in Africa.
• To explore how to transform these funds into third-generation instruments.
• To scale up private sector participation in road financing through PPPs and PBCs.

Key Findings

1. Performance of Road Funds

• Road Funds (RFs) were established as part of the Road Maintenance Initiative (RMI) in the late 1980s.
• The 2006 Performance Survey highlighted that second-generation RFs were better at securing resources for road maintenance, but most still struggled to meet their needs.
• Only 11 out of 27 surveyed RFs met their routine maintenance expenditure needs, and only 13 countries had direct funding mechanisms in place for RFs.
• The report emphasizes the need to move towards third-generation RFs, which would be more sustainable and capable of leveraging private financing.

2. Challenges in Private Sector Participation

• Private sector involvement in road PPPs is limited compared to other sectors like electricity generation.
• This is due to the long construction periods, complex technical and environmental/social issues, and the need for low user tariffs to ensure social acceptability.
• The private sector is more interested in projects that offer clear financial returns and risk transfer.

3. The Restoration Concept

• A novel PPP instrument proposed to improve high-demand roads and increase private participation.
• It involves upgrading qualified RFs to third-generation status and using them as creditworthy counterparts in Road Restoration PPPs.
• The model includes:
  • A Ring-fenced Road Restoration Window (RRW) within RFs to fund restoration contracts.
  • Targeting Priority Alignments (main roads connecting urban and business centers).
  • Combining increased fuel levies with toll revenues to expand and sustain the program.

4. Financial and Institutional Requirements

• For PPPs to be feasible, a robust and sustainable public funding system is essential.
• RFs can play a key role in this by generating stable, ring-fenced revenues.
• They require:
  • A clear mandate.
  • A comprehensive legal and institutional framework.
  • A strong governance system.
  • Diverse and sustainable sources of financing.

Key Instruments and Concepts

• Road Fund (RF): A special account collecting road user charges to fund maintenance.
• Road Agency (RA): An independent entity responsible for managing road maintenance programs and using RF funds.
• Performance-Based Contract (PBC): A contract where payments are tied to the quality and performance of road maintenance.
• Government-Pays (Gov.-Pays) PPP: A type of PPP where the public sector pays the private entity for maintaining the road.
• User-Pays PPP: A PPP where the private entity receives revenue from road users (e.g., tolls).
• Restoration Contract: A PPP model focusing on the long-term improvement and maintenance of high-demand roads.

Recommendations

• Upgrade selected RFs to third-generation status to make them more attractive for private financing.
• Implement a selective pilot approach to ensure the sustainability and success of the transition.
• Kenya and Ivory Coast are identified as having the highest potential to achieve third-generation RF status.
• Diversify revenue sources for RFs, including inflation-adjusted fuel levies, tolls, and vehicle registration fees.
• Improve road management practices to enhance the efficiency of fund usage.
• Establish a Road Restoration Window (RRW) to support the implementation of restoration PPPs.
• Support client countries with a multidimensional approach, including technical assistance, financial instruments, and collaboration with other donors.

Conclusion

The report highlights the importance of reforming and modernizing Road Funds in SSA to create a more sustainable and efficient system for road maintenance. It advocates for a country-specific approach to upgrading RFs to third-generation status, which would enable them to act as credible off-takers in PPPs and leverage private financing. The proposed Restoration Concept is seen as a promising model to improve road infrastructure and increase private sector participation in the SSA road sector.