CONFIDENTIAL Susan Liberty and Christopher D. Lloyd June 4, 2009 Public Private Partnerships – Statutory Frameworks for Alternative Project Delivery

2 Virginia Procurement Opportunities Design-bid-build Design-build PPEA

3 Design-Bid-Build Traditional procurement method allowed under the Virginia Procurement Act Begins with selection of engineer and design team through competitive negotiations Selected firm designs project to near complete drawings Design and bid specifications are put out for bid Some public entities start with RFQ, then proceed to RFP to help narrow list of potentially qualified contractors Contractor selection based on lowest responsible bid Construction is “to the plans”

4 Design-Bid-Build: Pros Time tested, known process Forms and contracts are commonly available and terms are well understood Results in perceived lowest cost Reduces uncertainty in design and construction methods No special approvals needed from other governmental entities Design/engineering firm works DIRECTLY for the public entity LCSA has strong track record of successful use

5 Design-Bid-Build: Cons Change orders and budget uncertainty Slow process – cost escalation and inflation Subject to significant litigation All project procurement costs are borne by the public entity Design/engineering firm works DIRECTLY for the public entity Multiple contacts – who’s in charge? Who’s responsible when something goes wrong? Public entity retains all project risks, project oversight

6 Design-Build Originated in private sector, began public sector use in 1980s/1990s Design-Build Review Board created in 1996 to grant project specific approvals Law amended in 2006 to allow one-time board approval to public entities (Loudoun and Alexandria have approvals) Engineer and contractor propose as a common team with shared risks and rewards Public entity often uses on-call or in-house expertise to scope project and assist with team evaluation Widely used by VDOT, about other projects statewide

7 Design-Build: Pros Budget certainty Qualifications based selection, price is not the sole factor Reduces project delivery time Collaboration between engineer and contractor can result in project efficiencies/value engineering Contract forms (DBIA models) becoming generally accepted Turnkey project delivery Single point of contact

8 Design-Build: Cons Approval process to use design-build by local governments can be lengthy Design and construction methods often fluid and decisions made “on the fly” Project price could have significant contingency costs to cover risks shifted from the public entity Procurement costs are borne by the public entity

9 PPEA Law passed in 2002 Based on PPTA (Transportation) of 1995 Allows for both solicited and unsolicited proposals for development and/or operation of “qualifying projects” Public entity must adopt guidelines to consider project proposals 2 phase process – conceptual and detailed Results in a de facto design-build procurement Nearly 100 projects completed or underway statewide

10 PPEA: Dispelling the Myths Not a panacea Not free money Not a finance tool Not secret negotiations Not necessarily cheaper Not privatization

11 PPEA: Project Examples Prince William Service Authority (under construction) Fredericksburg (5 projects completed) Stafford County Public Schools – Learning Village Virginia Department of Corrections – 3 facilities Regional jails Public safety centers Kingstowne Library Parking (Roanoke, Fredericksburg, Winchester, Wiehle Avenue)

12 PPEA: Process Public entity solicits for proposals or accepts unsolicited proposals Minimum of 45 day open competition period for unsolicited proposals FOIA protections for confidential information are negotiated Conceptual proposal outlines team qualifications, proposed scope, proposed scope and public benefits Public entity may levy a proposal review fee on both solicited and unsolicited proposals Proposal review fee is used to cover procurement costs

13 PPEA: Process All competing proposals are reviewed, followed by a downselect Detailed proposals are requested – often relies on recommendations of outside/inside advisors Detailed proposals start to lock in project scope, costs, schedule Leads to an interim or comprehensive agreement with one firm Significant requirements for public notification and hearings

14 PPEA: Pros Many of the same benefits as design-build PPEA has a certain “cachet” with state regulatory and funding bodies No Richmond approvals necessary Public entity retains right to reject, modify, expand, or contract proposals at any time Project costs can be covered by proposers Staff augmentation and single point responsibility

15 PPEA: Cons Project scope and cost may not be defined until late in the negotiation process Learning curve for public officials and public Suspicions about “competitive negotiations” Did I get the best possible price? Negotiations can be lengthy and complex

16 PPEA: Why Unsolicited Proposals? Greater acceptance of use of project review fees Greater flexibility to develop a project with undefined scope Opportunity to get “world class” ideas Opportunity to get the “dream team”

17 PPEA: Why Solicit Proposals? Public entity is in proactive, not reactive mode Greater opportunity to narrow or define scope May increase competition, number of proposals Reduces requirements for staff time to meet with proposers

18 PPEA Implementation What Makes Projects Go Well Open and collaborative process between public and private sectors Atmosphere that encourages innovation and creativity Include public, press and other stakeholders Objectives (cost savings, time, limits on risk) are clear from the beginning

19 PPEA Implementation What Makes Projects Go Bad Unnecessary closed door discussions Public sector shifts all risk, not willing to pay for it Staff objections to process Owner did not establish clear criteria and goals upfront to properly assess performance and success at end Cost overruns and scope creep Public sentiment turns away from development Negotiations never end Project is overly defined or restricted

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