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Infrastructure Delivery Private Initiative and the Public Good Public Disclosure Authorized hm6> Economic Development Institute 10l04 of The World Bank Public Disclosure Authorized Infrastructure Delivery Private Initiative and the Public Good Public Disclosure Authorized Edited by Ashoka Mody Public Disclosure Authorized EDI DEVELOPMENT STUDIES Public Disclosure Authorized Other EDI Development Studies (In order of publication) Trade, Technology,and internationalCompetitiveness Irfan ul Haque Corporate Governance in Transitional Economies: Insider Control and the Role of Banks Edited by Masahiko Aoki and Hyung-Ki Kim Unemployment, Restructuring, and the LaborMarket in Eastern Europeand Russia Edited by Simon Commander and Fabrizio Coricelli Monitoring and Evaluating Social Programs in Developing Countries: A Handbookfor Policymakers, Managers, and Researchers Joseph Valadez and Michael Bamberger Agroindustrial Investment and Operations James G. Brown with Deloitte & Touche LaborMarkets in an Era of Adjustment Edited by Susan Horton, Ravi Kanbur, and Dipak Mazumdar Vol. l. Issues Papers; Vol. 2. Case Studies Does Privatization Deliver? Highlights from a World Bank Conference Edited by Ahmed Galal and Mary Shirley The Adaptive Economy: Adjustment Policies in Small, Low-Income Couintries Tony Killick Financial Regulation: Changing the Rules of the Game Edited by Dimitri Vittas The Distribution of Income and Wealt)hin Korea Danny Leipziger and others Public Enterprise Reform: The Lessons of Experience Mary Shirley and John Nellis (Also available in French and Spanish) Privatization and Control of State-Owned Enterprises Edited by Ravi Ramamurti and Raymond Vernon Finance at the Frontier:Debt Capacity and the Role of Credit in the Private Economy J. D. Von Pischke EDI DEVELOPMENT STUDIES Infrastructure Delivery PrivateInitiative and the Public Good Edited by Ashoka Mody The World Bank Washington, D. C. Copyright © 1996 The International Bank for Reconstruction and Development / The World Bank 1818 H Street, N.W. Washington, D.C. 20433, U.S.A. All rights reserved Manufactured in the United States of America First printing August 1996 The Economic Development Institute (EDI) was established by the World Bank in 1955 to train officials concerned with developmentplanning, policymaking, investment analysis, and project implementation in member developing countries. Atpresent the substance of the EDI's work emphasizes macroeconomic and sectoral economic policy analysis. Through a variety of courses, seminars, and workshops, most of which are given overseas in cooperation with local institutions, the EDI seeks to sharpen analytical skills used in policy analysis and to broaden understanding of the experience of individual countries with economic development. Al- though the EDI's publications are designed to support its training activities, many are of interest to a much broader audience. EDI materials, including any findings, interpretations, and conclusions, are entirely those of the authors and should not be attributed in any manner to the World Bank, to its affiliated organizations, or to members of its Board of Executive Directors or the countries they represent. Because of the informality of this series and to make the publication available with the least possible delay, the manuscript has not been edited as fully as would be the case with a more formal document, and the World Bank accepts no responsibility for errors. The material in this publication is copyrighted. Requests for permission to reproduce portions of it should be sent to the Office of the Publisher at the address shown in the copyright notice above. The World Bank encourages dissemination of its work and will normally give permission promptly and, when the reproduction is for noncommercial purposes, without asking a fee. Permission to photocopy portions for classroom use is granted through the Copyright Clearance Center, Inc., Suite 910, 222 Rosewood Drive, Danvers, Massachusetts 01923, U.S.A. The complete backlist of publications from the World Bank is shown in the annual Index of Publications, which contains an alphabetical title list (with full ordering information) and indexes of subjects, authors, and countries and regions. The latest edition is available free of charge from the Distribution Unit, Office of the Publisher, The World Bank, 1818 H Street, N.W., Washington, D.C. 20433, U.S.A., or from Publications, Banque mondiale, 66, avenue d'Iena, 75116 Paris, France. At the time of writing, Ashoka Mody was principal financial economist in the World Bank's Cofinancing and Project Finance Department. Library of Congress Cataloging-in-Publication Data Infrastructure delivery: private initiative and the public good / edited by Ashoka Mody. p. cm. - (EDI development studies, ISSN 1020-105X) Includes bibliographical references and index. ISBN 0-8213-3520-0 1. Infrastructure (Economics) 2. Infrastructure (Economics) - Finance. 3. Infrastructure (Economics) - Developing countries. I. Mody, Ashoka. II. Series. HC79.C31516 1996 363-dc2O 95-39451 CIP Contents Foreword vii Preface ix Contributors xi Overview Infrastructure Delivery: New Ideas, Big Gains, No Panaceas xiii AshokaMody Chapter 1 No Single Path: Ownership and Financing of Infrastructure in the 19th and 20th Centuries 1 CharlesD. Jacobsonand JoelA. Tarr Chapter 2 Exploiting New Market Opportunities in Telecommunications 37 VeroniqueBishop, Ashoka Mody, and Mark Schankerman Chapter 3 Principles of Regulatory Policy Design 79 David E. M. Sappington Chapter 4 Financing Infrastructure in Developing Countries: Lessons from the Railway Age 107 Barry Eichengreen Chapter 5 The Public Finance of Infrastructure: Issues and Options 129 VinayaSwaroop Chapter 6 The Role of Export Credit Agencies in the Foreign Financing of Infrastructure in Developing Countries 149 Ning S. Zhu iii iv Contents Chapter 7 Project Finance in Practice: The Case Studies ThomasH. Pyle 171 Chapter 8 Methods of Loan Guarantee Valuation and Accounting AshokaMody and Dilip Kumar Patro 191 Index 221 Boxes Box 2.1 China Introduces Competition 56 Box 2.2 Long-Distance Competition in Mexico 57 Box 2.3 Interconnection in Poland 66 Box 2.4 Legal Test of Efficient Components Pricing 68 Box 2.5 Unbundling the Government's Role in Mexico and Malaysia 70 Box 8.1 The Basic Black-ScholesOption Pricing Analysis 199 Tables Table 1 Sectoral Strategies for Competition and Regulation xx Table 2 Project Financing of Funded Infrastructure Projects, by Sector, October 1993 xxxii Table 1.1 Ownership and Financing of U.S. Infrastructures 6 Table 2.1 Annual Telecommunications Investment Requirements for Developing Countries 45 Table 4.1 The Proportion of Overseas New Issues Introduced by the Main Types of British Issuing Houses, 1870-1914 115 Table 4.2 Distribution of Total Flow of Capital to Canada, 1900-1914 120 Table 4.3 Gross Construction Outlays in Major Transport Fields in Canada, 1901-1930 121 Table 5.1 Road User Taxes and Charges 140 Table 6.1 Long-Term Export Credits 155 Table 6.2 Long-Term Export Credits to Infrastructure Sectors 155 Table 6.3 Long-Term Infrastructure Export Credits to Countries by Income Categories 157 Table 6.4 Long-Term Export Credits for the Major Recipients 157 Contents v Table 6.5 Interest Rates and Maturities for Long-Term Export Credits 158 Table 6.6 Share of Export Credits Financed or Refinanced by ECAs 159 Table 7.1 Hopewell Energy (Philippines) Corporation Project: Costs and Financing 177 Table 7.2 Shajiao C: Costs, Financing, and Guarantees 182 Table 8.1 Guarantee as a Put Option 197 Table 8.2 Implied Values of Guarantees on Corporate Bonds 201 Table 8.3 Subsidy Cost Rates for Different Risk Ratings and Loan Maturities 203 Table 8.4 Sensitivity in Guarantee Values and Interest Rate Benefits 206 Table 8.5 Risk Profile and Guarantee Value 206 Table 8.6 Accounting for Loans and Guaranteed Loans, before and after Accounting Reform 211 Table 8.7 Budgetary Treatment of Eximbank 217 Figures Figure 1 Unbundling Activities Increases the Options for Competition and Private Sector Development xix Figure 2 Options for Financing Increase with Administrative Capacity and Maturity of Domestic Capital Markets xxx Figure 2.1 Direction of Liberalization of the Telecommunications Sector 40 Figure 2.2 GNP vs. Main Lines per Capita, 1983 and 1992 in Low- to Middle-Income Countries 42 Figure 2.3 Waiting Lists as a Percentage of Main Lines, 1992 43 Figure 2.4 India and Chile: Wait Lists and Main Lines 44 Figure 6.1 Annual Export Credits: Actual and Trend 154 Figure 6.2 Long-Term Export Credits to Infrastructure Sectors 154 Figure 6.3 Share of Long-Term Export Credits to Top Recipient Countries 156 Figure 7.1 Model Financial Structure of an Asian Power Generation Project 173 Figure 8.1 System of Accounts under Credit Reform 215 Foreword As governments move toward increasing private provision of infrastruc- ture, the benefits are evident in more and better services. However, the brief recent experience has also demonstrated that many challenges lie ahead. To effectively harness private initiative to meet the objectives of efficiency and fairness, governments themselves must gear up to deal with a new and sophisticated range of contracting, regulatory, and financial mechanisms. While much can be gained through a continued movement away from government to private provision, the benefits are unlikely to be either quickly or easily realized. The essays in this book grew out of background papers for World Devel- opment Report 1994, which focused on infrastructure and development. Ex- tensively revised and reworked, these essays present keen perspectives
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