Why digital infrastructure needs public-private partnerships: Lessons from physical infrastructure

In a recent Devex post, Achim Steiner, head of UNDP, and Amitabh Kant, India’s G20 Presidency sherpa, join the growing calls for more investment in #DPI as a means of driving growth, reducing poverty and increasing resilience in the face of crises. However, with government budgets already stretched, where will the additional funding come from? While donor #funding may help, it cannot fill the gap alone.

The field of physical infrastructure offers another way for cash-strapped governments to fund infrastructure projects: public-private partnerships (PPPs). Governments have long used various methods to raise funding or move the risk of providing essential services to the private sector. However, the modern push for infrastructure PPPs gathered momentum in the 1990s as countries like the UK and Australia explored new ways of financing essential infrastructure. Multilateral financiers became major promoters of PPPs, offering technical assistance to governments through specialist agencies like PPIAF, and co-funding designed to entice private funding to defined PPP projects. They even documented their approach in a comprehensive PPP guide directed at governments, together with associated training and certification.?

Could a PPP-like approach work for digital infrastructure as well??

In principle, the answer has to be yes. Like physical infrastructure, #digital infrastructure involves an upfront design and build process and requires subsequent operation and maintenance. Private sector providers can play a combination of different roles in PPPs at different stages, but the key difference from a pure service contract is whether in fact the main private partner assumes significant financial #risk.?

One of the big arguments in favor of PPPs was that having private partners assume risk was the best way of managing it, rather than simply passing it over to governments who were often ill equipped to do so. However, ensuring delivery as specified and without unfair exploitation of either party over a long period required a complex web of contracts. Both parties needed the capacity and willingness to work within clear and fair contractual frameworks. But when they did, the state had clear oversight and control of infrastructure without having to build and manage it. The state often assumed full ownership of the underlying asset after the PPP contract period ended.?

Even if states have the financial capacity, most are highly unlikely to be able to build their own digital infrastructure in-house. They will rely on technology partners for this, even if their role is to deploy and modify open source applications in a specific context. Even when a government agency chooses to maintain a DPI once built, it will likely rely at least in part on external service providers to support it. In other words, the digital services environment is already rife with complex contracting and inter-dependencies between contractors and clients. Taking an explicit PPP approach may not reduce complexity, but it may enable it to be addressed in a more explicit and effective manner.

A final question for now: was “the juice (of setting up PPPs for physical infrastructure) worth the squeeze”, particularly with regards to the end outcomes for the state? After all, PPPs in some places have generated controversies over the manner of their procurement, failed standards of service delivery, or the high price of their services. But the alternative—direct government procurement and delivery—has hardly been immune from criticism either.

In 2015, the Independent Evaluation Group at the World Bank published its judgment based on evidence from the sizable number of PPPs supported by the World Bank Group. It concluded: “PPPs are largely successful in achieving their development outcomes.” There is ground to believe that PPPs can be successful in delivering public services.

While the visibility of PPPs has faded slightly in recent years, in part because of association with privatization as a politically unpopular approach in many places, the call for blended finance options has risen. PPPs of course offer just that: a structured way to blend different types of finance, including donor and concessional funding.??

With eyes wide open from the past 30 years of experience of PPPs, I believe there is therefore a case to consider explicitly the circumstances in which digital infrastructure PPPs may work best for delivery and operation. It won’t be all cases, maybe not even a majority. But it may well be enough to make a substantial difference in the delivery of essential digital services.?

Read the Devex Post: Why digital public infrastructure matters more than you think

#digitalinfrastructure #donorfunding #PPP #PPPs #publicprivatepartnerships #digitalpublicinfrastructure #governance #goodgovernance