Changing partners – How to get the best from PFI/PPP Ed Bartlett & Gary Moss Introduction • “Two key processes in PFI/PPP projects: construction and on-going management – what is the role of FM in each?” • • • • • Overview of the UK PFI/PPP Market PFI/PPP Procurement basics The role of FM in PFI/PPP projects How to add value to a PFI/PPP bid The importance of whole life thinking Cyril Sweett Background • One of UK’s leading independent cost & project management • • • • • consultancies 400 staff, £27m fee turnover PFI Market leader Involved in 100+ PFI/PPP projects to date Working for bidders, funders, public sector, contractors & FM providers Current PFI projects include: • Health: Barts & London, Newcastle, Manchester, Cambridge Addenbrookes, Oxford, Durham, Fife • Education: Sheffield, Gateshead, Barnsley, North Lanarkshire, Clacton, Exeter, West Lothian, Waltham Forest • Defence: Northwood NATO HQ, Allenby & Connaught barracks, RAF Honnington Overview of the UK PFI/PPP Market PFI/PPP Drivers – 564 PFI deals with a capital value of more than £35bn have been signed. Source: Chief Secretary to the Treasury, Rt Hon Paul Boateng MP, 11 June 2003 – Investment in schools PFI since 1997 will total £3 billion. Source: Baroness Ashton, Education Minister, speech 26 March 2002 – In 2005 there will be £5.2 billion Government spending on Schools. This is part of a £30-45 billion investment over the next 10-15 years. Starting later this year, a programme for £2.1bn spending on 'Building Schools for the Future' will commence. – There have been 68 major hospital developments worth over £7.6 billion since 1997 with 64 of these involving private finance. Source: John Hutton MP, Health Minister, speech 18 March 2002 – Total investment in public services is increasing from £23.7 billion in 1996-97 to £40.5 billion by the end of 2003/4. The PFI element will increase from £1.5 billion to over £3.5 billion. Source: Deputy PM speech, 28 May 2002 – 81% of public bodies involved in PFI projects believe they are achieving satisfactory or better value for money from their PFI contracts. Source: National Audit Office, November 2001 Spend: 1997-2005 5,000 4,500 4,000 3,500 3,000 2,500 2,000 1,500 1,000 500 0 19 97 /9 8 19 98 /9 9 19 99 /0 0 20 00 /0 1 20 01 /0 2 20 02 /0 3 20 03 /0 4 20 04 /0 5 20 05 /0 6 £m PFI/PPP Growth Year * Includes predictions from non Government sources for 2003-2005 for Health and MoD PFI/PPP should: • Be more innovative in design, construction, • • • maintenance and operation; Create greater efficiencies and synergies between design and operation; Invest in the quality of the asset to improve long term maintenance and operating costs; Manage risks far better – the discipline of the market place provides better incentives - so that projects are delivered on time and within budget. [source ODPM] Current PFI/PPP Initiatives • • • • • NHS ProCure 21 NHS LIFT Projects DfES Building Schools for the Future MoD PRIME Contracts Private Sector Property Outsourcing PFI/PPP Procurement PFI/PPP Basics • Long term outsourcing to private sector • Procurement & financing of facilities & services • Operation of facility/service for typical 25-30 year • • • • concession period Risk transfer to service provider Single point responsibility Guaranteed annual income Contracts based on defined service delivery criteria Key Issues in PFI/PPP - bids • • • • • • • A highly competitive market Well-known affordability benchmarks Bidding process can be protracted Bid costs can be enormous Bidder will expect some risk sharing Bidders are seeking long term involvement PFI projects are getting bigger & more complex: • Dumfries & Galloway Schools: 130 schools • MoD Allenby & Connaught: 7000 SLA • Barts & London Hospital: £650m capital spend • Norfolk Schools: 78 schools Key Issues in PFI/PPP - spend • Getting the right balance between capital and life • • • • • cycle spend Hand-back requirements at end of contract Dealing with change & obsolescence Making the financial model stack up Sensitivity Analysis: inflation, discount rates, durability assumptions Double-counting in the cost models Key Issues in PFI/PPP - FM • To create and sustain an environment that achieves the customer’s requirements and is continuously: – Secure and safe – Available and operational – Statutorily compliant – Proactively managed – Good value for money PFI/PPP Market Place – Bid Process • ITN issued with Output Specification for Project • Invitation to Negotiate – ITN – Av 4 bidders – Prepare and submit over 2-3 months – Architect/Structure/M&E – Stage B Design 1:200 – Firm Build,FM and Lifecycle Costed solutions • Best and Final Offers – BaFO – 2 bidders – Further refinement of Design and solutions – More detail into lifecycle modeling but no increase!! • Sometimes LaFO – Last and Final Offers or • Preferred Bidder - negotiation to contract close – Price generally lower than ITN unless client change – Design Development is team risk – mostly FM !! Defining Service Requirements • Main contract – “Project agreement” • Construction and FM sub-contract • Project Output Specification: • • Defines what outcome is required • Unlikely to define how it is to be achieved • Considerable scope for innovation Project Payment Mechanism: • Availability payments – based on objective standards • Performance payments – based on quality of service delivery • User charges, e.g road tolls • Volume/usage payments – based on level of use + Robust payment deduction mechanisms PFI Payment Mechanisms Conventional Asset Procurement Cost Overrun Cost Overrun £m Time Overrun Ï Capital Cost 0 3 Estimated Running Costs 25 Years Î PFI Procurement Ï Unitary Payment £m 0 3 25 Years Î Capex v Opex (e.g. Hospital real £) Portering 5% Helpdesk / Reception 1% Receipt & Distribution 1% Security 2% Car parking 2% Capex 38% Laundry 5% Cleaning / Domestics 9% Catering 11% FM management 5% Hard FM 10% Life Cycle Replacement 11% The role of FM in PFI/PPP projects & How to add value to a bid Integration of Roles and Functions Design Construction Ongoing FM Opportunity to realise best value Feedback • Feedback on buildings in use – the missing link in procurement Finance Design Feedback Build Operate PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors Interface PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) FM Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors FM Role – Public Sector Provider • Technical Advisor as part of PFI/PPP Project Management team • / Architect / QS – Sector specific strategic asset management advice – Whole Life Cycle Costing – Develop FM output specification – Evaluate private sector FM bids and contract negotiation – TUPE / ROE advice – Bringing knowledge of how the private sector will approach the pricing of a PFI bid – Helping the Public Sector to present the project in an attractive way which is most likely to deliver value for money from bidders Existing Hard / Soft FM provider – Potential ongoing service delivery role (dependant on contract scope i.e. Hard v Soft) – ‘Local’ knowledge is key PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) FM Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors FM Role – SPV • FM bid management/strategy • Review of FM proposals and market testing of supply • • • • • chain / budgets Independent certification of FM services at Completion Training of Management staff IT System support Risk management Develop whole life strategy and manage Life Cycle Fund (dependant on risk transfer – see later) PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors FM FM Role – FM main contractor • Hard FM (Health - typically £20-30 / m2 pa) • – Planned and reactive maintenance – Grounds maintenance – Window cleaning – Pest Control – Waste Soft FM (Health - typically £80 - 100 / m2 pa) – FM management (£10-15 / m2 pa or part of service budgets) – Catering (£15-20 / m2 pa) – Cleaning / Domestics (£18-25 / m2 pa – Laundry (£8-12 / m2 pa or £0.30 – 0.35 per item) – Helpdesk / Reception (£1.50 – 1.75 / m2 pa) – Portering (£10-12 / m2 pa) – Receipt & Distribution – Security – Car parking – Transport etc. PFI/PPP Project Structure Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors FM FM Role – FM sub-contractor • Hard FM / Soft FM delivery • Issues: – – – – – – – Ability to take performance risk from main contractor Strength of balance sheet Track record and sector expertise Knowledge of TUPE / ROE legislation implications Ability to enter long term contract – typically 10 yr + Local knowledge Specialist services PFI/PPP Project Structure FM Public Sector Provider Financial Institution Design Team + Professional Advisers Special Purpose Vehicle (SPV) Equity Contractor(s) (CJV) FM Provider(s) Subcontractors Subcontractors FM Role – Financial Institutions • Technical Due Diligence on Hard FM / Soft FM delivery • Issues: – Review of “operational risk” – Is the output specification industry standard / onerous / likely to cause performance? – Are the FM providers method statements / methodology / staffing structure robust and deliverable? – Are the service budgets and cost estimates adequate to deliver a compliant service? The FM Role in PFI/PPP • PFI is about providing a facility then operating & • • • • • maintaining it for a 25-30 year concession period Almost all PFI bidding consortia include an FM provider The FM provider is involved in the project from the start The 25-30 year FM costs must be accurately predicted and will be fixed during the bid stages PFI is about achieving VFM throughout the concession period not just in terms of capital costs FM will therefore have a major input into the design process How FM Providers Add Value to PFI Bids • Engaging with the contractor and design team • Involvement in design team meetings & value management • • • • • • workshops Design life and service life input Review of detailed design & specification decisions Supply chain management Encouraging trade-offs, i.e. increasing capital spend in order to achieve long term cost savings Ensuring adequate provision is made for future maintenance Real feedback from operation Increasingly, due to whole life costs, FM is taking a leading role in the design process The importance of whole life thinking Importance of Whole Life Thinking • Whole life thinking is central to PFI process • Achieving best value over the life of the • • • • • • concession Optimising capital and operating costs Procuring durable, maintainable, efficient facilities Integrating design,construction & FM Planning for future expenditure Managing future risks Sustainable solutions Importance of Whole Life Thinking Construction Design Maintenance Whole Life Costing Environment Legislation Operations Long Term Commitment Daily Weekly Monthly 1 year 5 years 15 years 25 - 30 years Whole life approach to design, construction and operation with ‘spend to save’ options for constant improvement Major replacements planned in advance with emphasis on continuity and non-disruptive work activities Cyclical replacements and refurbishments to maintain quality, functionality and service Annual plans developed in advance through discussion with end users Monthly review meetings and forecast planning Weekly Performance review Daily monitoring “A whole life approach is underpinned by medium and short term activity integrated with an overall objective for continuous, high-quality service delivery” (source: HBG FM) At the Feasibility/Concept stages • Size & orientation of buildings • Estates strategy – refurbish v newbuild • Energy use – Shape of building (ratio of exterior wall to enclosed area, prevailing weather direction, solar gain – some conflict) – Numbers of staff required to maintain and operate, security, plant etc. (Can numbers be reduced?) – Height of building (need for lifts, scaffolding, window cleaning versus reduction in external envelope area) At the Detailed Design Stage • Analysis of ‘spend to save’ options • Net Present Value calculations - e.g. for floor finishes or roof finishes • • • • • Cost smoothing to reflect income streams Risk modelling Capital allowances & taxation issues Energy modelling Benchmarking of FM costs During the 30 Year Concession Period • Logical grouping of related work items, e.g. to optimise • • • use of scaffolding & to reduce downtime Consideration of what drives replacement, e.g. physical, economic, technical obsolescence. Liaison with the financial modelers to agree the optimum spend profiles. Smoothing of life cycle spend to avoid major peaks & achieve maximum financial advantage, e.g.: – Internal redecorations profiled as 20% per year rather than 100% every 5 years – Flooring renewals to be profiled according to likely wear & damage WLC Approaches (1): Historic costs • • • • • Based on analysis of similar facilities in use, eg: – £/m2 /year – £/occupant/year – £WLC as a % of capital cost Useful in providing quick, broad estimates Cost build up not always explicit Can lack robustness Unlikely to be suitable as a cost optimisation tool WLC Approaches (2): Predictive • Based on prediction rather than historic costs • For each building element/component/location: • • • – what maintenance/replacement needed? – when/how often? – how much of it? – at what cost? Derived from condition survey of existing assets, or cost plans for proposed works Costs can be interrogated and optimised A long term strategic planning tool Typical life cycle spend profile LIFE CYCLE EXPENDITURE 70,000,000 12,000,000 ANNUAL VALUE, £ 50,000,000 8,000,000 40,000,000 6,000,000 30,000,000 4,000,000 20,000,000 2,000,000 10,000,000 0 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 YEAR Annual Value, £ Cumulative Value, £ CUMULATIVE VALUE, £ 60,000,000 10,000,000 Cost Significant – Whole Life Rank 3 Block New Build Acute Hospital Location Element Component 1 3A 2 5H Main Building Main Building Wall Finishes General Lighting 195,170,186 5,302,303 4,965,780 115,999,571 14,820,166 12,685,830 23.32 2.98 2.55 12.78% 10.94% 280% 255% 3 2H 4 5J 5 4A Main Building Main Building Main Building Internal Doors Lift Fittings and Furnishings 8,914,442 10,260,000 13,811,638 11,908,960 9,829,016 7,817,990 2.39 1.98 1.57 10.27% 8.47% 6.74% 134% 96% 57% 6 5M Main Building Services Medical Equipment 3,905,866 4,989,060 1.00 4.30% 128% 7 5L Main Building Fire detection and alarm 9,103,930 4,915,759 0.99 4.24% 54% 8 5L Main Building 3,573,706 4,519,137 0.91 3.90% 126% 9 3B 10 5F Main Building Main Building Staff paging and Nurse call system Floor Finishes Chiller plant 10,127,624 1,655,260 4,281,284 4,228,610 0.86 0.85 3.69% 3.65% 42% 255% 11 2E 12 5H Main Building Main Building External walls Emergency lighting 17,770,390 496,578 3,605,637 3,468,101 0.72 0.70 3.11% 2.99% 20% 698% 13 5H Main Building General LV power 3,257,331 3,120,502 0.63 2.69% 96% 14 2G Main Building Internal partitions 11,967,490 2,952,802 0.59 2.55% 25% 15 5M Main Building Building Automation 2,352,550 2,410,239 0.48 2.08% 102% 16 3C 17 5F Main Building Main Building Ceiling Finishes General supply and extract 6,952,512 3,204,851 2,255,675 2,085,047 0.45 0.42 1.94% 1.80% 32% 65% 18 5F Main Building LTHWH 9,448,794 1,595,612 0.32 1.38% 17% 19 5H Main Building 1,654,408 1,406,343 0.28 1.21% 85% £/m2 pa 20 5L Main Building Uninterrupted Power supplies Radio, TV and CCTV 347,605 1,395,441 0.28 1.20% 401% 13.04 Sort Code 3A - WALL FINISHES 5H - ELECTRICAL INSTALLATIONS 2H - INTERNAL DOORS 5J - LIFT INSTALLATIONS 4A - FITTINGS AND FURNISHINGS 5B - MECHANICAL INSTALLATIONS 5H - ELECTRICAL INSTALLATIONS 5H - ELECTRICAL INSTALLATIONS 3B - FLOOR FINISHES 5B - MECHANICAL INSTALLATIONS 2E - EXTERNAL WALLS 5H - ELECTRICAL INSTALLATIONS 5H - ELECTRICAL INSTALLATIONS 2G - INTERNAL WALLS AND PARTITIONS 5B - MECHANICAL INSTALLATIONS 3C - CEILING FINISHES 5B - MECHANICAL INSTALLATIONS 5B - MECHANICAL INSTALLATIONS 5H - ELECTRICAL INSTALLATIONS 5H - ELECTRICAL INSTALLATIONS 142,141 m2 CAPEX (replaced elements only) LCC LCC £/m2 % LCC % of Capex replaced £/m2 pa 16.08 68.96% 55.93% Roofing Product Analysis Roof Options WLC 30 Years (NPV @ 3.5 - 4,000m2 Building) Polymer modified felt Element Standing seam polymer coated/colour coated Standing seam mill finish Single Ply membrane Composite Tiles Concrete Tiles - 5,000 10,000 15,000 20,000 25,000 30,000 35,000 £ B MATERIAL C Selection needed for Planning Permission 9 10 Roof Covering D Priority E Capex F Ratio G Ranking H 30Y WLC I 30Y Capex + WLC J Ratio K Ranking L 30Y WLC M 30Y Capex + WLC N Ratio O Ranking Concrete Tiles Y Y 1 14,192 1.08 2 6,594 20,786 1.00 1 3,142 17,335 1.00 1 Composite Tiles Y 1 24,835 1.90 5 8,804 33,640 1.62 5 4,196 29,031 1.67 6 Y Y 1 1 26,163 23,546 2.00 1.80 6 3 4,584 6,548 30,746 30,094 1.48 1.45 3 2 2,354 4,014 28,516 27,561 1.65 1.59 4 3 Y 1 23,423 1.79 4 9,619 33,042 1.59 4 5,785 29,209 1.68 5 Y 1 13,081 1.00 1 22,820 35,901 1.73 6 11,704 24,785 1.43 2 11 12 13 Single Ply membrane Standing seam mill finish 14 Standing seam 15 coated/colour coated 16 Polymer modified felt polymer Managing FM Risk • Sensitivity analysis: discount rates, inflation, labour • • • • costs, benchmarking Risk simulation to model variability e.g. component replacement times & maintenance needs Factoring in the effects of disruption Transferring risk to suppliers/insurers Dealing with risk in the FM cost model: – Apply global risk premium – Payment mechanism deduction modelling – Reduce life of key components – Assess consequences of failure Summary • “Two key processes in PFI/PPP projects: construction and on-going management – what is the role of FM in each?” • PFI/PPP is and will continue to be a major market for • • • • FM FM has a role with many PFI/PPP organisations on both public and private sector sides The FM input starts before construction – most value gained at the design stage On-going management presents real risk and opportunities to business and individuals A “Whole Life” approach is key to success
© Copyright 2024