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JAPAN INTERNATIONAL COOPERATION AGENCY (JICA) No. DEPARTMENT OF PUBLIC WORKS AND HIGHWAYS (DPWH) THE REPUBLIC OF THE PHILIPPINES TheTh Development D lp t of f TheTh Public-private PPublic blblippq private i t Partnership P t hhi TTechniqueechnique h i forfThfThMtMiloeetoaa The Metro Manila il UrbanUbbp Expressway Epy y Network NNt k FINAL REPORT VolVlume I: MAIN TEXT MarchMhac 2003 003 ALMEC Corporation Cp ti NIPPON KOEI CCo.,Ltd.LdLtd SSF JR 03-49 The exchange rate used in the report is J. Yen 119.2 = US$ 1 = Philippine Peso 50.50 J. Yen 1 = Philippine Peso 0.4237 (selling rate of the Philippine Central Bank as of July 2002) JAPAN INTERNATIONAL COOPERATION AGENCY (JICA) DEPARTMENT OF PUBLIC WORKS AND HIGHWAYS (DPWH) THE REPUBLIC OF THE PHILIPPINES The Development of The Public-private Partnership Technique for The Metro Manila Urban Expressway Network FINAL REPORT Volume I: MAIN TEXT March 2003 ALMEC Corporation NIPPON KOEI Co.,Ltd. SSF JR 03-49 PREFACE In response to the request from the Government of the Republic of the Philippines, the Government of Japan decided to conduct a masterplan study of the Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network and entrusted the study to the Japan International Cooperation Agency (JICA). JICA selected and dispatched a study team consisting of ALMEC Corporation and NIPPON KOEI headed by Mr. Tetsuo Wakui of ALMEC Corporation to the Philippines from December 2001 to March 2003. In addition, JICA set up an advisory committee headed by Mr. Tadashi Okutani of the Ministry of Land, Infrastructure and Transport between December 2001 and March 2003, which examined the study from specialist and technical points of view. The team made a careful review of past studies and experiences in urban expressway projects, conducted transportation demand forecast and economic/financial analyses; and, through a series of discussions with the officials concerned of the Government of the Philippines, reached the conclusions in this final report. I hope that this report will contribute to the improvement of traffic conditions in the Metropolitan Region through acceleration of urban expressway network development. Finally, I wish to express my sincere appreciation to the officials concerned of the Government of the Philippines for their close cooperation extended to the study team. March 2003 Takao Kawakami President Japan International Cooperation Agency March 2003 Mr. Takao Kawakami President Japan International Cooperation Agency Letter of Transmittal Dear Sir, We are pleased to formally submit herewith the final report of “The Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network”. This report compiles the results of the study which was undertaken both in the Philippines and Japan, jointly by the study team organized by ALMEC Corporation & Nippon Koei and the Philippine Counterpart Team, from December 2001 to March 2003. We owed a lot to many people for the accomplishment of this report. First, we would like to express our sincere appreciation to all those who extended their kind assistance and cooperation to the study team, in particular, the BOT Project Management Office of the Department of Public Works and Highways. We also acknowledge the officials of your agencies, especially the members of the Steering Committee, the JICA Advisory Committee and the Embassy of Japan in the Philippines for their valuable advice and cooperation given to us throughout the course of the study. We wish the report would contribute to development of the Metro Manila urban expressway network to solve traffic problems in the National Capital Region. Very truly yours, Tetsuo Wakui Team Leader, The Study Team for the Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network The Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network Final Report TABLE OF CONTENTS Volume I : Main Text Volume II : Bidding Documents INTRODUCTION 1 THE METRO MANILA URBAN EXPRESSWAY NETWORK 1.1 Existing Expressways in Metro Manila 1-1 1.2 Future Expressway Network 1-2 1.3 Demand Forecast 1-14 1.4 Financial Analysis 1-23 1.5 Toll Rate Setting 1-27 2 PPP TECHNIQUE FOR METRO MANILA EXPRESSWAY DEVELOPMENT 2.1 Review and Assessment of PPP Techniques 2-1 2.2 Institutional and Legal Environment for PPP 2-46 2.3 Guidelines for the Development of the PPP Technique 2-55 3 GUIDELINES FOR THE OPERATION AND MAINTENANCE OF METRO MANILA EXPRESSWAYS 3.1 Operation and Maintenance Activities 3-1 3.2 Traffic Information System and Electronic Toll Collection System 3-22 3.3 Organization and Cost of Expressway Operation and & Maintenance 3-73 4 CASE STUDY OF R10/C3/R9 (+R10/C5 LINK) EXPRESSWAY 4.1 Planning Environment 4-1 4.2 Demand/Revenue Forecast 4-5 4.3 Preliminary Engineering Studies 4-12 4.4 Cost Estimates 4-45 4.5 Environmental Evaluation 4-64 4.6 Application of the PPP Technique to the Case Study Expressway 4-96 4.7 Case Study on TIS, ETC and O&M 4-120 5 PREPARATION OF MODEL BIDDING DOCUMENTS 5.1 Review of Existing Bidding Documents 5-1 5.2 Preparation of Model Bidding Documents 5-2 5.3 Contract Management and Project Monitoring System 5-21 5.4 Points to Keep in Mind at Contract Negotiation 5-23 ANNEXES i The Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network Final Report LIST OF FIGURES Figure I.1 Study Area I-3 Figure I.2 Study Framework I-4 Figure I.3 Study Organization I-5 Figure 1.1 Existing Expressways in Metro Manila 1-2 Figure 1.2 MMUES Expressway Network 1-3 Figure 1.3 MMUTIS Expressway Network 1-4 Figure 1.4 Other Proposed Expressways in Metro Manila 1-5 Figure 1.5 Future Expressway Network for Study: Scenario A 1-7 Figure 1.6 Future Expressway Network for Study: Scenario B 1-8 Figure 1.7 Assumed Implementation Schedule of the MMUEN 1-9 Figure 1.8 Road Network for 2015 1-16 Figure 1.9 Rail Network for 2015 1-17 Figure 1.10 Traffic Flow on the MMUEN 1-21 Figure 1.11 Recent History of Toll Rate Increases in Metro Manila 1-28 Figure 1.12 Network Demand vs. Toll Rate 1-30 Figure 1.13 Network Revenue vs. Toll Rate 1-31 Figure 1.14 Car User Benefit vs. Existing Toll Rates 1-33 Figure 1.15 Simulated Travel Speed Conditions (kph) in Metro Manila, 2002 1-34 Figure 1.16 Simulated Travel Speed Conditions (kph) in Metro Manila, 2015 1-34 Figure 1.17 Diversion Rate Under Several Travel Speed Conditions 1-35 Figure 1.18 Average Pattern of Expenditure at NCR (% of income) 1-36 Figure 1.19 International Trends: GDP/Capita vs. Toll Rate 1-37 Figure 2.1 PPP Development Process 2-5 Figure 2.2 Degree of Involvement of the DPWH and the TRB in Different 2-6 Project Stages Figure 2.3 Toll Fees: 1987 Actual and CPI-based 2001 2-63 Figure 2.4 Loan Maturity and Project Risk 2-69 Figure 2.5 Comparative FIRR of Urban Expressways 2-77 Figure 2.6 Future Phases in Expressway Development 2-81 Figure 3.1 Shoulder Regulation 3-6 Figure 3.2 Median Lane Regulation 3-6 Figure 3.3 Shoulder Lane Regulation 3-6 Figure 3.4 Median Regulation 3-7 Figure 3.5 Contra-flow Two-way Regulation 3-7 Figure 3.6 Moving Regulation 3-8 Figure 3.7 Infrastructure of Traveler Information Services 3-23 Figure 3.8 Locations of MMDA and TEC Cameras 3-33 ii The Development of the Public-Private Partnership Technique for the Metro Manila Urban Expressway Network Final Report Figure 3.9 Locations of Variable Message Signs 3-38 Figure 3.10 Functions of a Traffic Information System 3-50 Figure 3.11 Transmission System Hierarchy 3-61 Figure 3.12 Proposed Toll Road Traffic Information System 3-62 Figure 3.13 Development Stages of the MMUEN 3-69 Figure 3.14 Phased Development Strategy 3-70 Figure 3.15 Assumption of Segmentation 3-71 Figure 3.16 Organizational Framework for Operation and Maintenance 3-74 Figure 3.17 An Image of the Expressway Operations Center 3-74 Figure 3.18 An Example of the Subdivided Network for O&M Stations 3-76 Figure 3.19 Typical Staff Composition of an Operation and Maintenance Station 3-77 Figure 4.1 Location of the Case Study Expressway 4-1 Figure 4.2 Work Flow of Case Study 4-2 Figure 4.3 Revenue Comparison of Distance-proportional Toll Rate and Flat Toll 4-6 Rate (Year 2015) Figure 4.4 Demand Forecast for the Case Study Expressway 4-7 Figure 4.5 Demand Forecast for Case Study Expressway and Skyway Stage 3 4-9 Figure 4.6 Demand Forecast for Case Study Expressway and MNT C5 4-11 Figure 4.7 Typical Cross-section of the Case Study Expressway (4 Lanes) 4-14 Figure 4.8 Typical Cross-section of the Case Study Expressway (2 Lanes 4-14 Separated) Figure 4.9 Typical Cross-section of the Case Study Expressway (1 Lane 4-14 Separated for Interchanges) Figure 4.10 Typical Cross-section of the Case Study Rampway (1 Lane) 4-15 Figure 4.11 Alignment Layout of Case Study Expressway 4-16 Figure 4.12 Assumed Cross-section of EDSA Flyover and MRT 3 Extension and 4-17 Structure Gauge of MRT 3 Figure 4.13 Typical Cross-section of C5 Expressway 4-18 (STA.2+100~STA.2+300, STA.2+500~STA.2+780) Figure 4.14 Location Plan of the MNT C5 Expressway 4-19 Figure 4.15 Road Alignment Key Plan for the C5 Expressway 4-20 Figure 4.16 Proposed Link of the Case Study Expressway and the MNT C5 4-20 Expressway Figure 4.17 Cross-section of 5th Avenue Station of LRT 1 4-21 Figure 4.18 Caution Board at 5th Avenue Station of LRT 1 4-21 Figure 4.19 Expressway Alignment and Location of Planned Intersection 4-22 Figure 4.20 Cross-section of the Rampways (around STA: 8+200) 4-23 Figure 4.21 Profile