By Arminante Antonella, Carfora Rachel, Melanie De Luca, Teresa Gualtieri.
1. INTRODUCTION
The process of change in recent years has characterized the public sector in many industrialized countries has led to substantive element of the progressive reduction of public intervention in the economy and the crisis of the system defined by the term "welfare state. This
model was characterized by strong centralization of the institutions, mainly necessitated by the existence of primitive computer technology, communication systems substantially slow and poorly trained human resources and also by a commitment in the economy growing in terms of wealth public investment and direct involvement in the management of public utilities, which resulted in an increase in the number of public companies made up of nature, namely that both processes are dispensers that productive than those which are essentially paid. Simultaneously, the increasing supply of public services, supported by a simultaneous increase in the demand of themselves and favored by improving economic conditions and people's lives, increased the dissatisfaction of the citizens because of the progressive increase in public spending and inefficient supply of services. The
significant increase in public spending was "determined by a much wider range of services and performance of public administration (in some cases beyond the actual needs) and from spending patterns are not always rational and devoid of specific optimization goals , and also as the drive to centralize responsibility taxation and spending decisions, which at the micro level, ie individual public enterprises, was exacerbated by a management inefficient them.
This has created strong pressures for development of a public role to the state being defined as the quality of life, which creates a more streamlined methods of intervention, geared mainly to support activities not guaranteed by the private sector, ensuring the pursuit of equity and the achievement of adequate levels of efficiency and effectiveness. The objectives pursued by the state's quality of life are separable, in particular, into two distinct parts:
of the State services, which becomes central in the performance of public services to produce in quantity quality and meet the expectations of citizens, families, businesses (customer service orientation);
the regulatory state, in which, however, is the central aspect of the downsizing of the public, for which the administration is less and less involved in the processes of production technique, having to concentrate on the economic behavior of other government entities [1] .
Changing the role of the public body, combined with changing market demands, has therefore initiated a complex process of reform of the instruments through which to achieve and / or manage the infrastructure works and public services.
In this new context we see more and more of the public entity to attempt to involve private capital in the creation and / or management of those services or works.
The need, therefore, the involvement of private capital, due to the continuous growth of public debt, resulted in the spread of national and international mechanisms for cooperation between public and private, which go under the name of public-private partnership ( PPP).
Over the last decade, the PPP phenomenon developed in many fields within the public sector (transport, public health, education, public safety ...). The increase in the use of standing di PPP è riconducibile a vari fattori.
In presenza delle restrizioni di bilancio cui gli stati devono fare fronte, risponde alla necessità di assicurare il contributo di finanziamenti privati al settore pubblico.
Inoltre, il fenomeno è spiegabile anche con la volontà di beneficiare maggiormente del "know-how" e dei metodi di funzionamento del settore privato nel quadro della vita pubblica. Lo sviluppo del PPP va, d’altronde, inquadrato nell'evoluzione più generale del ruolo dello Stato nella sfera economica, che passa da un ruolo d'operatore diretto ad un ruolo d'organizzatore, di regolatore e di controllore.
In Italia le iniziative di PPP più significative hanno origini agli inizi degli anni Venti quando venne impostata la realizzazione della prima autostrada (la Milano-Laghi) che venne inaugurata nel 1925.
Nel 1927 un’apposita legge (la n. 1137) stabilì che anche i soggetti privati potevano essere destinatari della concessione di autostrade. La c.d. “Legge Romita” del 1955 (n. 463) stabilì, poi, la scelta del metodo concessionale quale strumento principale per la costruzione della rete autostradale.
Le autostrade italiane, quindi, sono state realizzate tramite iniziative di PPP.
In Italia, nel triennio 2002–2004, sono state censite 101.379 gare per la realizzazione di opere pubbliche per un importo totale di 101,3 miliardi di euro. Rispetto a questo aggregato, il PPP incide per circa il 24% the total amount of projects.
These data confirm that, in moments like the present, when the European economic system has constraints imposed by scarce resources and widespread difficulties in boosting investment, the PPP may be an opportunity.
In light of this, it should be noted that while it is certainly true that cooperation between public and private sectors can determine microeconomic benefits of allowing a project with the best value for money, the other should not be considered a "miracle" solution.
In this vein, the European Commission's Green Paper on public-private partnership is il primo passo per l’ eventuale adozione di una direttiva ad hoc che disciplini il fenomeno a livello comunitario. Tralasciando i possibili sviluppi, l’interesse del Libro Verde risiede nella puntualizzazione di alcune regole di base affinché le forme di partenariato pubblico-privato possano considerarsi coerenti con i principi generali di diritto comunitario, superando di fatto l’estrema eterogeneità dei rapporti e degli istituti giuridici che sono riconducibili alle molteplici forme possibili di partnership pubblico-privato.
2. IL LIBRO VERDE RELATIVO AI PARTENARIATI PUBBLICO-PRIVATI
ED AL DIRITTO COMUNITARIO DEGLI APPALTI PUBBLICI E DELLE
CONCESSIONI
Il 30 aprile 2004 la Commissione has published the "Green Paper on public-private partnerships and Community law on public contracts and concessions" (COM327/2004) [2] .
The Green Paper launches a process of recognition of the situation currently prevailing in different states of the Union with a view to possibly come to identify a framework of common rules and share with regard to forms of "collaboration" between public and private entities.
It has the merit to propose a systematic and comprehensive legal framework on the issue of the various forms of partnership, where they found gaps and inconsistencies both in Community law and the rights of the Member States. The
concept of PPP which moves the Green Paper is likely to cover a wide spectrum of cases that arise from the practice even more than the laws.
The Green Paper examines the phenomenon of PPPs in the light of Community law on public contracts and concessions. The law does not provide for specific arrangements including the PPP. Nevertheless, any act by which a public body awards work involving an economic activity to a third party must be examined in light of the rules and principles deriving from the Treaty, in particular in the light of the principles of transparency, equal treatment, proportionality and mutual recognition.
The Green Paper aims to initiate a debate on the application of Community law on public contracts and concessions to the PPP. This debate focuses on the rules to be applied when you decide to entrust a mission or task to a third party. It is located downstream of the organizational and economic choice made by a local authority or national level, and can not be interpreted as a debate designed to express a general appreciation regarding the decision whether or not to outsource the management of public services. This decision lies exclusively with the public authorities.
Community law on public contracts and concessions is neutral as regards the choice exercised by Member States to provide a public service through their services themselves or to entrust it to third. More specifically, the Green Paper is intended to illustrate the scope of EU standards in the selection of the private partner and the next step in order to identify any uncertainties and to assess whether the EU framework is adequate to the challenges and characteristics of PPPs .
3. THE PUBLIC-PRIVATE PARTNERSHIP
The term public-private partnership (PPP) is not defined at Community level.
It covers the various forms of possible cooperation between public and private sectors, through which their skills and resources are integrated to ensure the financing, construction, renovation, la gestione o la manutenzione di un’infrastruttura o la fornitura di un servizio.
Il PPP costituisce una operazione complessa, un contratto tra l’amministrazione e l’operatore privato, caratterizzata dalla coesistenza di tutti o parte dei seguenti elementi chiave:
la progettazione (Design);
il finanziamento (Finance);
la costruzione (Build);
la gestione (Operate);
la manutenzione (Maintenance).
I seguenti elementi caratterizzano normalmente le operazioni di PPP:
la durata relativamente lunga della collaborazione, che implica una cooperazione tra il partner pubblico ed il partner privato in relazione a vari aspetti di un progetto da realizzare [3] .
the method of financing the project, provided by the private sector, sometimes by means of complex relationships between different actors. Often, however, share of public funding, sometimes quite substantial, can be added to private financing.
the important role of economic, participating in various project phases (design, development, implementation, financing). The public partner concentrates primarily on defining the objectives to be achieved in terms of public interest, quality of services offered, pricing policy, and ensure the monitoring of compliance with these objectives.
the allocation of risks between the public partner and the partner private, where risks are usually transferred to the public sector [4] . The PPP does not necessarily imply that the private partner assumes all the risks, or the most significant risks of the operation. The precise allocation of risk is made on a case by case basis, depending on the ability of the parties concerned to assess, monitor and manage the same.
Depending on the allocation of risk between the public partner and private partner are two major types of projects through forms of PPP:
a) Projects with an intrinsic capacity to generate income
In this type can be distinguished:
· the projects that generate ricavi da utenza (soggetti terzi), in pratica il partner privato consegue un integrale recupero dei costi sostenuti nell’arco della durata della concessione,
· i progetti in cui il privato fornisce direttamente servizi alla PA: è il caso di tutte quelle opere pubbliche - carceri, ospedali, scuole - per le quali il soggetto privato che le realizza e gestisce trae la propria remunerazione esclusivamente (o principalmente) da pagamenti effettuati dalla pubblica amministrazione.
b) I progetti che richiedono una contribuzione pubblica
In tale tipologia rientrano gli interventi i cui ricavi da utenza sono di per se insufficienti a generare adeguati ritorni economici, in tali casi per coprire i costi si rende necessaria una contribuzione pubblica. La realizzazione di tali interventi economicamente negativi trova la propria ratio nella capacità di determinare delle esternalità positive in termini di benefici sociali.
Tramite l’uso del PPP, dunque, il settore privato può dare un grosso contributo mettendo a disposizione del settore pubblico le sue capacità di gestione, la sua efficienza, il suo potenziale di finanziamento e investimento, lasciando alla pubblica amministrazione il compito di assicurare la fornitura dei servizi pubblici, la regolamentazione dell’economia e ovviamente la condivisione del rischio con il settore privato.
Tale cooperazione porta con sé innumerevoli vantaggi [5] , tutti derivanti da un’ottimale allocation and risk-sharing between public and private sector: if, in fact, the project risks are properly identified and analyzed, then the project participants can minimize the risk of failure and a project with the best value for money [ 6] .
course perspective to be adopted is that of long-term project throughout the duration of the individual must be able to provide a high quality service that the public sector would not be able to provide.
As we have seen, the public-private partnerships can be a useful option to enable the financing of projects of public interest, but in any case, they must observe a number of essential conditions, that the COM (2003) 132 identifies:
the "clear" definition of the project in question;
the political will that must be "long-term, to avoid calling into question the initial decisions;
transparency and the protection of competition in the management of tender procedures;
"stakeholders must work to ensure a quality partnership"
a precise and stable legal environment;
the definition of adequate financial guarantees;
the consistent sizing statement for the project under consideration;
financial returns within a reasonable period of time;
prediction of "a breakdown revenue beyond a jointly agreed - minimum amount of income guaranteed by the state (but they may be related to disguised aid);
clear and detailed definition of the risks to the project;
cost transparency, conditions for granting and exercise, and more generally of the project.
These conditions, as repeatedly stated by the European Commission itself, "are not respected in practice."
The Green Paper has analyzed the phenomenon of PPPs in the light of Community law on public contracts and concessions, outlining an initial distinction between:
PPPs of a purely contractual in which the partnership between the public and private sector bonds is based solely on conventional
institutionalized PPPs, involving cooperation between the public and the private sector within a distinct entity.
This distinction is based on the finding that the diversity of PPP practices encountered in the Member States can be traced to these two great models.
4. THE TYPE OF PARTNERSHIP purely contractual PPP
The term of a purely contractual concerns a partnership based solely on contractual links between the various actors. It defines various types of operation, in which one or more tasks more or less wide (including the design, financing, construction, renovation or exploitation of a work or a service) are assigned to the private partner.
The partnership models of a purely contractual best known are the contract and award.
Public contracts are contracts for pecuniary interest concluded in writing between one or more economic operators and one or more contracting authorities and having as its object the execution of works, supply of goods or the provision of services. The private partner is intended to build and manage infrastructure for public administration (eg, a school, hospital, prisons, infrastructure transport). In this model, the remuneration of the private partner is not the case in the form of fees paid by users of the work or service, but regular payments are received by the public partner. These payments may be fixed or variable depending, for example, availability of work or services relating to it, or even attending the opera [7] . Concessions are
, such as public procurement, contracts for pecuniary interest concluded in writing between one or more economic operators and one or more contracting authorities and having as its object the execution of works or the provision of services (no delivery) whose consideration, however, is right only to exploit the work or services or in this right together with payment. The concession model is characterized by the direct link between the private partner and the end user: the private partner provides a service to the public, "in place", but under the control of the public partner. The salary of the co-contractor consists of fees collected from users of the service, if necessary supplemented by subsidies paid by the public.
The difference between these two models is, therefore, in this: in the concession, the concessionaire company provides its services to the public and, therefore, assumes the risk of operating the works or services, as it pays for at least a significant part, on users by charging a price in the contract, however, benefits are paid not to the public, but the administration, which is required to remunerate the work done by ' contractor for the services it yields. The company that provides work or service can not stand, therefore, the risk involved in the management of the work or service, so that, lacking the element of risk, the case does not constitute an award, but as a contract works or services
regards the stage of selecting the private partner, the Commission shall treat separately the "act attributive classified as a public "from the" regarded as a concession. "
In the first case, it is stated in the Green Paper, the "rules applicable to the award of contracts for public works or public services, derives from the provisions of EU directives setting detailed rules, in particular in the field of advertising and participation ".
In the case of attribution of acts classified as concessions, the Commission recognizes that there are a number of provisions of secondary legislation coordinate the award procedures.
The choice of private partner must be those who are still respecting the principles established in the Treaty, which are principles of transparency, proportionality, mutual recognition and equal treatment. More precisely, we shall meet the following conditions: pre-determination of criteria for the selection of the concessionaire, appropriate advertising, put in actual competition in the potentially affected operators, the award on the basis of objective criteria and not discriminatory.
In general, government intervention in the choice of private partner should never be detrimental to the principles of equal treatment and transparency.
5. PARTNERSHIP ESTABLISHED
The partnership is institutionalized when it has formed an autonomous entity jointly owned dal soggetto pubblico e dal soggetto privato (es. società miste).
Tale società ha la missione di fornire un servizio o la realizzazione di un opera a favore del pubblico.
Negli Stati membri, le autorità pubbliche ricorrono a volte a queste strutture, in particolare per la gestione di servizi pubblici a livello locale (ad esempio, per i servizi d'approvvigionamento idrico o per la raccolta dei rifiuti).
La cooperazione diretta tra il partner pubblico ed il partner privato nel quadro di un ente dotato di personalità giuridica propria permette al partner pubblico di conservare un livello di controllo relativamente elevato sullo svolgimento delle operazioni, che può adattare nel tempo in funzione delle circostanze, attraverso its presence in the shareholding and decision-making bodies in the joint venture.
It also allows the public partner to develop its own experience with regard to the provision of the service in question, while using the support of a private partner.
The creation of an IPPP can happen in two ways: a) creation of an entity owned jointly by the public and private b) shift to private control of a public that already exists.
a) creation of an entity owned jointly by the public and private:
the operation is to create a company with mixed capital, in this type of operation should be il rispetto dei principi comunitari di cui all’art 43 e 49 del trattato UE che impongono: trasparenza, proporzionalità, mutuo riconoscimento e parità di trattamento. Inoltre, la scelta del soggetto privato destinato a svolgere gli incarichi deve avvenire nel pieno rispetto del principio di non discriminazione.
b) passaggio a controllo privato di un’impresa pubblica già esistente:
tale operazione si verifica quando si assiste ad una modifica della partecipazione azionaria di un’impresa pubblica. Tale scelta è una scelta esclusivamente politica e come tale è di competenza esclusiva dello Stato. Anche questa forma di PPP istituzionale deve avvenire nel pieno rispetto dei principi del trattato.
6. LE POSSIBILI FORME DI PARTENARIATO PUBBLICO-PRIVATO
Data la carenza a livello comunitario di una normativa specifica, che identifichi in maniera tassativa le forme di PPP, esso si è sviluppato in modo differente nei vari stati membri.
A tal fine e per completezza di analisi passeremo in rassegna le diverse forme giuridiche attraverso le quali si possono realizzare operazioni di PPP sia nell’ordinamento italiano sia nella prassi internazionale.
a) PPP nell’ordinamento giuridico nazionale
Concessione di lavori pubblici (art. 19, II comma L.109/1994 e art. 7 d.lgs 190/2002): è il contratto tra un soggetto privato e una P.A. avente ad oggetto la progettazione, la esecuzione delle opere unitamente managing them. The fee for the private is the right to manage the property. The government grant can be finalized only in the economic-financial balance, in fact, the risk management must be in the hands of the private sector.
Service concession (art. 1, par. 4, Directive 2004/17/EC) is an agreement between the PA and an individual to manage a service, the fee for the private sector is represented only by the right to manage the service, possibly with a price, as long as the risk always remains in the hands of the private entity.
third-party agreement for the management of a local public service (Art.113, paragraph V, Letter TUEL) is the contract between the PA ed una società di capitali individuata in base ad una procedura ad evidenza pubblica.
Project Financing (art 37 bis e ss L 109/94): è una operazione di finanziamento di una particolare iniziativa imprenditoriale, che è valutata da un finanziatore (soggetto privato) fin dallo stato iniziale in funzione della redditività e del flusso di cassa (cash flow) che essa è in grado di generare, che costituiscono la garanzia primaria per il rimborso del debito ed il capitale di rischio (equity).
Contraente generale (art. 9 d.lgs 190/02): è il contratto tra un soggetto privato e la PA avente ad oggetto la progettazione, l’esecuzione con qualsiasi mezzo ed il prefinanziamento dell’opera against a payment by the PA in whole or in part to the work completed. The pre-financing can have a maximum of 20% of the basic notice. Mixed Company
TUEL (artt.113, V paragraph letter b, 116 and 120 of TUEL) is a partnership between the PA and a private entity for the management of a public service to local economic importance, or to create of works related to public service, or to design and implement interventions of urban transformation.
Mixed Company under the Civil Code (art.2247 and SS) is a partnership between the PA and the private entity for construction and / or management of Public Works
Company transformation Urban - STU (Article 120 of TUEL): metropolitan cities and municipalities may provide for the design and implementation of interventions of urban transformation, for the marketing of rehabilitated areas and the management of any public services, corporation mixed public-private partnerships.
The STU is a company closely linked to the role of local authorities in the setup of their territory. Examples of
STU - The municipality of Bolzano retrieves the area around the railway station
- the city of Bergamo on intervening railway station;
- The municipality of Livorno involved for the improvement of the urban;
- the City of Piombino acts to replace the industrial plants
- The municipality of Terni acts to promote the service industry;
- the towns of Formia and Gaeta intervene to redevelop the south-coast Pontino;
- The municipality of Pescara action to recover: degraded areas either that the urban periphery of production plants discharged;
- Naples City Council recovers the industrial area in the east;
- The municipality of Crotone has appointed two companies of the station and the transformation of the port;
- the City of Syracuse has taken steps to revitalize the historic center;
- The municipality of Sant 'Antioco è intervenuto per valorizzare il territorio a livello turistico.
Fondazione di partecipazione (art. 14 e ss codice civile) è un negozio tra PA e privato per la gestione dei servizi pubblici.
Global Service (norma UNI 10685/98): contratto di esternalizzazione basato sui risultati, che comprende una pluralità di servizi sostitutivo delle normali attività di manutenzione di un immobile o di un patrimonio immobiliare con piena responsabilità dei risultati da parte dell’assuntore.
Acquisto di cosa futura (art. 1472 codice civile): contratto avente ad oggetto l’acquisto della proprietà di un bene immobile appena questo viene ad esistenza.
Leasing operativo: è awarding the contract between a company that produces or manages the property and the PA the good. The PA used is a licensing fee to the company, including charges related to the availability, the share of depreciation and finance costs and maintenance expenses.
Sale & Leaseback: is a contract under which the PA transfers ownership of an asset to an individual that allows him to enjoy in front of a monthly fee. The PA may at the end of the period of entitlement to redeem the property by paying the final installment.
b) PPP in international practice.
Contracting Out: contract with a private entity for design and construction of public works which are financed and retained by the public entity. There is a transfer of the risk of construction and design leader in private, a containment time of creation, not involving private capital. This operation is particularly suited to situations in which the public prefers to see the operational responsibility.
DBFT (Design, build, finance and transfer) is a contract with a private company which designs and builds a new airport and then transfer to the PA. This operation requires the involvement of private capital, private assume the risk of design and construction. E 'operation suitable for projects with high requirements, such as road infrastructure.
DBFO (Design, Build, Finance and Operate): This is a model in which a private company designs and builds a new infrastructure, runs for a specified number of years and then transfers it to the public entity. This operation requires the involvement of the private two-tier economic (investment) management of the work (know-how). E'adatta to projects with high standards of design and management, involves the transfer of the risk of design, construction and infrastructure management in the hands of the private sector.
BLT (Build Lease and Transfer): a private company against an agreed rent acquires the rights of revenues a public service in exchange for management. This transaction involves the transfer of commercial risk borne by the individual is particularly suited to complex tasks.
BOT (Build Operate and Transfer) is a concession contract to build and operate a new infrastructure of fixed-term work with final transfer to the PA. This operation is characterized by the involvement of private capital and risk transfer in-chief of planning and construction to the private sector itself. It 's a task suited to projects with high management requirements (eg the water sector and waste management).
Service Contracts: is a contract by which the private was involved solely for the provision of specific services (eg maintenance and accounting). It 's a task suited to situations in which the public prefers to transfer the operational responsibility, using the contribution of private experience.
Contract Management: transfer the responsibility for operation and maintenance of public property in the public sector to the private sector. This operation is suitable in all cases in which a prior cost-benefit analysis shows it to the utility, the consideration of the individual may be related to the achievement of certain quality standards.
Concession: is a contract concession that transfers to the private management responsibility for the management and maintenance of the investments, leaving ownership of assets remain public. E 'is suitable for projects where possible pricing.
7. LOCAL AUTHORITIES AND THE PUBLIC-PRIVATE PARTNERSHIP
In these past nineteen years there has been considerable debate around the role of local authorities, both at national and at EU level.
In the European Union, in 1986, with the approval of the Charter of Local Autonomy ", have been established the fundamental principles of subsidiarity (ie, the administration has to be for the entity closer to the people), autonomy (in the policy, regulatory and organizational) and popular participation
The keyword can contain the essence of the reform process that has affected the local authorities, at least until 1997, is was the word autonomy.
The law marked an important step in the process of institutional reform, starting from below, from local, was the Law 142, 1990.
The principle of subsidiarity has begun to take shape in 1997 with the approval of Law 59.
From 1997 to 1999 we had an impressive series of laws, among which are:
- better known as Law 127/97 a. Bassanini;
- a series of decrees, including the most important is the Legislative Decree 112/98;
- Law 265 of 1999, better known as Law-Napolitano Vigneri;
As if to put address the proliferation of legislation in recent years, the Government has approved the TU of Local Authorities (Legislative Decree 267/2000) which, although not by innovating on the substance of existing laws, has the advantage of having coordinated and merged with the current regulations, guidelines in the light of the prevailing case law.
The law of constitutional revision No 3 of 2001 was the culmination of the reform process started in '90 with the L. 142.
The new constitutional text provides for the articulation of the Republic, of course, in municipalities, provinces, metropolitan cities, regions and state.
addition to the State Bodies of the territorial government, in the above four categories specified by the standard, entities are exponentials of their communities, called to administer the interest ("autonomous entities with their own statutes, powers and functions, according to the principles established by the Constitution ( art. 114)).
The system is being introduced is a system of variable geometry, differential, which replaces the administrative unity and consistency to which we were and are still used.
7.1 EXPERIENCES PUBLIC-PRIVATE PARTNERSHIP IN THE ITALIAN LOCAL
: Campania
is the region that in 2003, has presented more PPP projects.
- NAPLES PORT: This project started the 2nd phase of the restructuring of the port. The Company Nausica SpA, comprising: Port Authority, City of NA, NA Provinces, and the Campania Region, has launched an international design competition for the urban redevelopment, the architectural and functional seaport. The value of the works is 50 million €, while 2 million and € 320 000 are expected by design. Were submitted, from engineering and architecture, 150 projects.
Una parte importante dei lavori saranno portati avanti in PPP o in project financing.
- NAPOLI ORIENTALE S.p.A.: con sei milioni di metri quadrati è la più estesa area dismessa del Sud. Soci: Comune NA, Provincia NA, Autorità Portuale, Unione Industriali NA, Confartigianato e API Napoli. Compito delle società è quello di presentare un piano di fattibilità economico-finanziaria che delinei un’ipotesi di riqualificazione dell’area. A novembre 2003 è stata presentata l’idea di lasciare gli impianti petroliferi a Napoli Est seppure in un’area limitata riqualificando il resto dell’area a fini commerciali, museali, turistici e alberghieri costituendo una STU per gestire gli interventi.
- SOTTOPASSO TUNNEL VIA ACTON è parte del “Progetto Integrato Napoli” e tra gli obiettivi ha quello di eliminare o almeno ridurre la barriera di auto nella zona del porto e verrà realizzato in project financing con 150 milioni di euro finanziati dalla Regione Campania ed utilizzando altre risorse che un altro project financing ha liberato nella realizzazione del progetto “Porto Fiorito”. La realizzazione del sistema dei collettori, l’adeguamento degli impianti di depurazione delle zone di Acerra, Cuma, Foce Reg Lagni, Marcianise e Napoli-Nord, nonché la realizzazione o l’adeguamento degli impianti di trattamento dei fanghi è stata assegnata in project financing.
- FLEGREA LAVORO SPA – BACOLI (NA) [8] : the City of Bacoli in 2000 to bring order to the city traffic, and reduce the phenomenon of valet "abusive", has decided to introduce the system of public pay car parks. To manage this new service, the City Council in August 2000 approved the establishment of a joint enterprise, a public limited company with public majority (51% of the capital) where the members are made by the City of Bacoli and Italy job . The decision to set up a company is linked not only to managerial reasons associated with efficiency, effectiveness and affordability, but especially dint of social need of having a job are "socially useful". The company has established the "Flegrea Lavoro SpA" with a capital amounting to three hundred million pounds, operates throughout the municipal area, which extends to about 13 square km and has about 27,000 inhabitants and provides the service through the six workers socially useful assumed direct.
The parking spaces provided by the City to "Flegrea Lavoro SpA are approximately 700, the company provides the service from 8.00 am to 20.00 at a price of 0.52 euro per hour which, if detected of the cars in no parking, the employees of Flegrea issue of the minutes which are then collected by the City.
POR Campania Region in 2000-2006 has expressly provided that the provinces should be promoted, for each geographical area, the establishment of PPP that can be composed of EE.LL, associations and organizations representative of the agricultural and productive organizations working in the field of environmental protection, tourism promotion and the voluntary sector.
8. CONCLUSIONS
The phenomenon has characterized the Public-Private Partnership with substantial national and international reality of the last decade, growing in many areas covered in the public sphere (transportation, health, education and security).
The interest in this phenomenon is due to the enormous benefits (fiscal, economic, technological, political and social) that may result from the cooperation between the public and the private sector and, therefore, dall'ottimale allocation and division of their risks.
For this to occur you need a huge effort and real commitment by governments (and of course by individuals).
Firstly it must be that the legal order to be credible, that there is an efficient system of trade laws that allow financial assets, corporate and business to grow. In the absence of this should at least be possible to ensure, however, the essential interests of the private sector.
Having said that legislative measures are practical: the government must have the authority to make concessions or licenses that make possible the participation of the private sector in an infrastructure project or a public service, this is not always easy and often necessary the inclusion of specific laws.
The acquisition process by which a PPP is formed to be transparent, fair, smooth and strong in order to attract maximum interest from potential private partners.
The public sector often has to provide certain facilities, or any right to use, the PPP that it may be feasible and funded. These structures may include land, existing structures, a existing public channel of income, subsidies and grants, projects and intellectual property, etc..
addition to this we must take into account the fact that such projects are facilitated by a clear commitment and long term, as the private sector to commit themselves, must have confidence in a stable political development.
To stimulate private investment in infrastructure, governments must commit themselves to promote a rebalancing of tariffs of existing services to reflect the actual costs involved in it.
Another important element is the private sector confidence in the public concerned, the PPP projects require time and effort to be implemented and if the bureaucracy is too complicated then investors will look elsewhere.
But the crucial point is that governments must be prepared to take certain risks and responsibilities without which the project will go forward and, in cases where payments for the use of the property does not come directly from the public, they may have to provide themselves an income stream for the project.
From the above it is clear how it can be difficult to carry out PPP projects, particularly in view of the fact that those key conditions identified by COM (2003) 132 (§ 3, pp. 7.8), are not always fulfilled and respected in practice.
On the other hand, the very term "Public-Private Partnership" we have seen not to be defined at Community level: the Green Paper, published in April 2004 by the European Commission initiated a process of recognition of the situations currently existing in the Member States with a view to possibly come to identify a framework of common rules and share with regard to forms of collaboration between public and private entities.
In particular, the interest of the Green Paper is in the clarification of some basic rules so that the forms of public-private partnership can be considered consistent with the general principles of Community law, beyond the fact of the extreme heterogeneity of the reports and legal institutions , due to the multiple forms possible PPP.
With reference to Community law on public contracts and concessions, in fact, outlines two types of PPP, to the purely contractual and institutionalized, to be implemented in full compliance with the principles of the Treaty and to which it seems possible to reconnect the diversity of practices PPP that can be found precisely in the EU.
is in this light, therefore, that our attention has been directed mainly to the Green Paper as a step towards the eventual adoption of a specific law governing this phenomenon at Community level in terms of better coordination of national practices, the exchange of best practices among member states and dissemination of PPP also trans.
[1] See Borgonovi E., Principles and business systems for government, Giuffrè, Milan, 1975, p.. 62.
[2] The Green Papers are discussion papers on a specific policy issue published by the Commission. They are first of all documents to all those - both agencies and private - involved in the process of consultation and debate. In some cases, represent the first step of the subsequent legislative developments. The
White Papers are documents containing proposals for Community action in a specific area. Sometimes followed by a Green Paper published to promote consultation at European level. While the green papers display a range of ideas for a public debate, white papers contain an official of proposals in specific policy areas and provide the means for achieving them.
[3] PPP contracts always have a very long duration, usually between 25 and 30 years.
[4] build and manage a public infrastructure has a number of risks: rising construction costs, maintenance costs higher than expected, changes in legislation affecting the use of infrastructure, increase or decrease in demand services provided and so on. These risks was traditionally facing the public sector, PPP projects but the risk must be specified, quantified and analyzed, and are divided between the public and private sector. It is essential that the risk is allocated to the party better able to control it, which in return will receive more economic benefits. Generally, the risk borne by the public sector are transferred to the private partner governments tend to take risks but not the political or financial of the project. When a substantial part of the risk is transferred to the private sector comes to funding off-balance-sheet "(outside the budget), in which case the costs incurred by the private not affect the public debt.
[5] benefits that PPPs can offer are varied: fiscal, economic, technological, social, political.
Among the tax advantages are worth mentioning, as mentioned above, that allow the PPP to borrow money off balance sheet, this form of financing, easing the burden of debt, allows the use of public resources in other areas.
One of the economic benefits is the speed in carrying out the works. Leveraging finances private sector projects and easing restrictions on public spending, PPPs can accelerate the speed with which infrastructure projects are launched. This allows the implementation of projects in circumstances where they would otherwise possible. With reference to social
PPP can provide better transport networks, cleaner water, new communication systems, etc..
[6] The assessment of the appropriateness of the transaction is, however, specifically evaluated case by case basis, through the construction of a parameter called the Public Sector Comparator (CSP), ie the hypothetical costs incurred by the public entity in the project.
[7] The most typical example of this model is the operation of PFI. The term PFI refers to "Private Finance Initiative, a program of the British government that allows the modernization of public infrastructure con l'ausilio del ricorso al finanziamento privato. Lo stesso modello è utilizzato in altri Stati membri, con varianti a volte notevoli.
[8] Citazione da Impagliazzo C. - Ippolito A, Il ruolo delle aziende miste nello sviluppo di nuovi rapporti tra pubblico e privato e nella creazione di valore sociale: il caso della Flegrea lavoro.
