Public private partnership in developed countries. Course work: Public-private partnership: world experience and Russian practice. Forms of implementation of public-private partnership

Public-private partnership, municipal-private partnership, regional public-private partnership project.

Yurieva Tatyana Vladimirovna

Public-private partnership projects in Russia and foreign countries// Regional economics and management: electronic scientific journal. ISSN 1999-2645. — . Article number: 4833. Date of publication: 2016-12-12. Access mode: https://site/article/4833/

Jur"eva Tat"jana Vladimirovna
Doctor of Economics, professor, Head of the Department of project and program management
Russia, The Russian Presidential Academy of National Economy and Public Administration
[email protected]

Abstract

The article deals with the mechanism of functioning of public-private partnership in the modern economy. Is analyzed the world practice implementation of projects on the principles of a-public-private partnerships. It’s shown the main trends in the development of public-private partnership projects at the regional and local levels.

Public-private partnerships, municipal-private partnership, regional project of public-private partnership.

Jur"eva Tat"jana Vladimirovna

Projects of public-private partnerships at regional level. Regional economy and management: electronic scientific journal. . Art. #4833. Date issued: 2016-12-12. Available at: https://site/article/4833/

Public-private partnership is a legally formalized for a certain period and based on the pooling of resources, distribution of risks, cooperation between a public partner, on the one hand, and a private partner, on the other hand, carried out on the basis of a public-private partnership agreement, in order to attract private investments, ensuring accessibility and improving the quality of goods, works, services, the provision of which to consumers is subject to the powers of state authorities and local governments.

The use of public-private partnership (PPP) mechanisms is currently becoming widespread in the Russian Federation.

PPP includes a number of forms of cooperation that allow the government and the private sector to derive mutual benefits.

PPP refers to innovative methods used by the public sector to contract with the private sector, using its capital and management capabilities to implement projects according to a specified time frame and budget. The public sector remains responsible for providing these services to the public in a manner that benefits them and has a positive impact on economic development and improving the quality of life of the population.

PPP is considered as specific projects implemented jointly by government agencies and private companies on federal, regional and municipal property.

The Ministry of Economic Development of Russia entered into an agreement with CJSC TRANSPROEKT Group on cooperation in the field of PPP

February 5, 2015

The Ministry of Economic Development of the Russian Federation represented by the Minister of Economic Development of the Russian Federation A.V. Ulyukaev and CJSC TRANSPROEKT Group, represented by the Chairman of the Board of Directors V.V. Maksimova, on January 30, 2015, signed an agreement on cooperation in the field of export of engineering and consulting services for the preparation and support of investment projects implemented on the basis of the public-private partnership (PPP) mechanism to the CIS countries.

As part of the agreement, the Ministry of Economic Development of Russia and JSC TRANSPROEKT Group plan to exchange information necessary for the preparation and conduct of joint events, as well as provide mutual expert, consulting and organizational assistance in the implementation of foreign economic projects of JSC TRANSPROEKT Group, including those aimed at expanding export of products, services and intellectual property and attraction of investments and technologies to the Russian Federation.

For the same purposes, the Ministry of Economic Development of the Russian Federation will provide assistance in the implementation of activities of JSC "TRANSPROEKT Group" within the framework of the relevant intergovernmental commissions on trade, economic, scientific and technical cooperation between the Russian Federation and foreign countries.

The conclusion of an agreement on interaction with the Ministry of Economic Development of Russia is an effective support for the active export activities of the TRANSPROEKT Engineering and Consulting Group (TRANSPROEKT Group) and its management company - TRANSPROEKT Group CJSC, in the markets of the CIS countries. TRANSPROEKT Group, as a consultant to state and municipal authorities (OGMU), over the past 10 years has successfully prepared and implemented dozens of largest infrastructure projects in Russia and the CIS countries with a total volume of public and private investments of more than 1.7 trillion rubles, proving in practice their effectiveness and efficiency various models of partnership between government and business.

Representatives of TRANSPROEKT Group have been repeatedly involved as expert practitioners to improve federal and regional legislation on public-private partnerships and concession agreements in the Russian Federation, the Republic of Kazakhstan, the Republic of Belarus and the Republic of Moldova.

In 2014, TRANSPROEKT Group, commissioned by the European Union and the United Nations Development Program, acted as a National Consultant to the Government and National Assembly of the Republic of Belarus on training in the field of public-private partnership.

Public-private partnership (PPP) is a set of forms of medium- and long-term interaction between the state and business to solve socially significant problems on mutually beneficial terms.

Story

Interaction between the state and the private sector to solve socially significant problems has a long history, including in Russia. However, PPP has become most relevant in recent decades. On the one hand, the complication of socio-economic life makes it difficult for the state to perform socially significant functions. On the other hand, business is interested in new investment properties. PPP is an alternative to the privatization of vital, strategically important state-owned assets.

The most indicative experience of public-private partnerships has been gained in the UK.

The concept of public-private partnership

There is no consensus among experts about what forms of interaction between government and business can be classified as PPP. A broad interpretation implies that PPP is a constructive interaction between government and business not only in the economy, but also in politics, culture, science, etc.

Among the basic features of public-private partnerships in a narrow (economic) interpretation are the following:

the parties to PPP are the state and private business;

interaction between the parties is fixed on an official, legal basis;

interaction between the parties is equal;

PPP has a clearly expressed public, social orientation;

in the process of implementing projects on the basis of PPP, resources and contributions of the parties are consolidated;

financial risks and costs, as well as the results achieved, are distributed between the parties in predetermined proportions.

As a rule, PPP assumes that it is not the state that is involved in business projects, but, on the contrary, the state invites business to take part in the implementation of socially significant projects.

Forms of public-private partnership

In a broad sense, the main forms of PPP in the field of economics and public administration include:

any mutually beneficial forms of interaction between the state and business;

government contracts;

rental relations;

financial lease (leasing);

public-private enterprises;

production sharing agreements (PSA);

concession agreements.

In Russia in 2004, seven main types of concession agreements were considered. However, in connection with the inclusion in a number of international treaties of the Russian Federation of certain provisions from the documents of the International Bank for Reconstruction and Development (World Bank) and preparations for accession to the WTO, other terms characterizing other types of concession agreements were also included in Russian legislation.

As of 2012, Russian law provided for the following 3 forms (types of contracts) of PPP:

Management contract and lease agreements;

Operation and maintenance contract;

Concession.

Areas of application of public-private partnership

The main area of ​​application of PPP in the world is the construction of highways. Among the remaining ones, the largest share is occupied by projects in housing and communal services. In Russia, projects in the field of water supply and wastewater treatment have been operating since the 1990s.

Public-private partnership in Russia

In Russia, the concept of PPP first appeared in legislation in the Law of St. Petersburg dated December 25, 2006 No. 627-100 “On the participation of St. Petersburg in public-private partnerships.” To date, similar laws have been adopted in 69 constituent entities of the Russian Federation, but most of them are declarative documents. In addition to regional acts, the scope of PPP is also regulated by the Federal Law of July 21, 2005 No. 115-FZ “On Concession Agreements” and the Federal Law of April 5, 2013 No. 44-FZ “On the contract system in the field of procurement of goods, works, services to ensure state and municipal needs." To some extent, PPP is regulated by the Federal Law of the Russian Federation of July 22, 2005 No. 116-FZ “On Special Economic Zones in the Russian Federation” (providing benefits to businesses in a certain territory is also a variant of PPP in a broad sense). However, all these regulations do not cover all possible forms of PPP.

Of the above types of PPP, only three are enshrined in Russian legislation (BOT, BTO, BOO). However, PPP in Russia operates without a well-developed legislative framework: at the beginning of 2013, about 300 such projects were launched and implemented in Russia.

The federal law on PPP in Russia has been discussed since the mid-2000s, but its first edition was prepared only by June 2012. The second version of the law appeared 4 months later. On March 13, 2013, the Government submitted to the State Duma the third version of the bill “On the Fundamentals of Public-Private Partnerships in the Russian Federation.” In previous editions, housing and communal services and defense facilities were excluded from the scope of application of the law. Now there will be no such restrictions. Among the innovations, the introduction of a single competition for the entire PPP project (instead of separate ones for each type of work) is also noted, as well as, conversely, the abolition of the competition for the transfer of land plots necessary for the construction of a PPP facility. There is currently no generally accepted definition, as well as a federal law on PPP. On April 26, 2013, the State Duma adopted in the first reading bill No. 238827-6 “On the fundamentals of public-private partnerships in the Russian Federation,” which defines the fundamentals of public-private partnerships. The second reading is scheduled for the autumn session. However, Russia has already concluded a number of international treaties that provide for the principles of public-private partnership, and in accordance with the provisions of paragraph 4 of Article 15 of the Constitution of the Russian Federation, such provisions take precedence over Russian laws.

The development of PPP in Russia is hampered not only by the lack of well-developed legislation. Equally important is the lack of long-term financing mechanisms. Russian business (in particular, banks) are not ready to participate in long-term projects (PPP agreements are usually concluded for 10-50 years). Nowadays, most large PPP projects are implemented in a “manual control” mode. Thus, the construction of the Western High-Speed ​​Diameter became possible only after the intervention of Vladimir Putin.

In 2007, the Development Bank was created on the basis of Vnesheconombank of the USSR. The Basic Law regulating the activities of this institution directly assigns to it the functions of a participant in the PPP market. The PPP Directorate of Vnesheconombank is a structural division of the Development Bank.

In world practice, specialized non-governmental organizations involved in methodological support of PPP projects and the development of the infrastructure investment market in general appeared in the early 2000s. The first can be considered PartnershipsUK in the UK, then similar centers arose in South Africa, Australia (Victoria), etc. The emergence of PPP development centers was preceded by government structures that performed the functions of methodological support and development of the primary regulatory framework in the field of PPP. Most PPP development centers are responsible for developing feasibility studies and drawing up implementation plans for PPP projects, and also provide subsequent consulting support for PPP projects. Some centers, for example, Parpublica and Partnerships BC, help ministries develop business plans and conduct cost-benefit analysis. Others, such as MAPPP, Partnerships SA and SouthAfricaPPPUnit, deal exclusively with the analysis of documents and feasibility studies for PPP projects written by government organizations.

By analogy with foreign centers, the Center for the Development of Public-Private Partnerships was established in Russia to establish and develop the PPP market. The PPP Development Center publishes the electronic journal “Public-Private Partnership in Russia”, established the first PPP Institute, and actively participates in legislative and other activities to establish and improve public-private partnerships in Russia.

In No. 1 of the “PPP-magazine” (February 2013), the “PPP-Start” rating was published, characterizing the readiness of the constituent entities of the Russian Federation for the construction of public infrastructure facilities with the involvement of private investors on the principles of PPP. The “readiness of a constituent entity of the Russian Federation to implement PPP projects” means the fulfillment of a number of conditions that provide a favorable climate for the implementation of investment projects on PPP principles.

Public-private partnership in St. Petersburg

Regional authorities in Russia are also adopting their own PPP programs in order to build long-term and mutually beneficial cooperation between OIGV and the private sector to implement large public projects. So, according to the head of the Committee on Investments and Strategic Projects A. Chichkanov: “The PPP mechanism allows not only to attract funds for the implementation of socially significant projects for the city, but also to find the most modern technical solutions and effectively manage the created objects.”

According to the World Bank, St. Petersburg is currently implementing one of the largest programs in the world to implement projects using public-private partnership schemes. The city has developed its own legislative framework allowing investors to interact with regional authorities as efficiently as possible:

So in 2006, the Law of St. Petersburg dated December 25, 2006 No. 627-100 “On the participation of St. Petersburg in public-private partnerships” was adopted.

In addition to it, 3 years later, Decree of the Government of St. Petersburg dated March 31, 2009 No. 346 “On measures to develop public-private partnerships in St. Petersburg” was issued.

As part of the administrative reform, the administrative regulations of the Committee on Investments and Strategic Projects were created. in the same 2009, the Order of the Committee on Investments and Strategic Projects of the Government of St. Petersburg dated December 8, 2009 No. 92 “On approval of the administrative regulations of the Committee on Investments and Strategic Projects for the performance of the state function of conducting an examination of materials necessary to determine the existence of grounds for making a decision on the implementation of an investment project through the participation of St. Petersburg in a public-private partnership"

Finally, in order to facilitate the implementation of the adopted documents, Resolution of the Government of St. Petersburg dated March 31, 2009 No. 347 “On measures to implement the Law of St. Petersburg “On the participation of St. Petersburg in public-private partnerships” was developed.”

Current PPP projects in St. Petersburg

Based on the Law of St. Petersburg “On the participation of St. Petersburg in public-private partnerships,” two large projects are being implemented: the development of the Pulkovo airport and the construction of a plant for processing solid household waste in the village of Yanino. Preliminary preparation of PPP projects in the field of housing is also underway. public utilities (water and heat supply, energy saving, etc.), development of transport infrastructure and in the social sphere (construction of socially significant facilities - schools, hospitals, etc.).

Competitions for PPP projects in St. Petersburg

On March 31, 2011, the results of an open Competition for the right to conclude an agreement on the creation and operation, on the basis of a public-private partnership, of buildings intended to house educational institutions in the Pushkinsky district of St. Petersburg and a lease agreement for land plots were summed up. LLC “Management Company “Peremena”” was recognized as the winner of the Competition. Currently, the Committee has announced competitions for the implementation of the following projects:

construction of the Palace of Arts on Vasilyevsky Island

creation and operation of the Western High-Speed ​​Diameter highway

reconstruction and construction of facilities at the Northern water pumping station of St. Petersburg with the introduction of two-stage water purification technology

Public-private partnership in Moscow

Moscow, unlike most other constituent entities of the Russian Federation, does not have its own law on PPP. According to the mayor of the capital Sergei Sobyanin, there are no plans to adopt it in the future, since the existing regulatory framework is sufficient for work. However, Moscow is now in 13th place in the PPP-start ranking of regions.

PPP projects in Moscow

Under the PPP scheme, the Myakinino metro station was built, and the construction of the Moscow-St. Petersburg expressway and the reconstruction of other federal highways diverging from the capital are currently underway.

A landmark PPP project in Moscow will also be the Solntsevo-Butovo-Vidnoye road in the territories annexed in the summer of 2012. The developer MDGroup, which is building a microdistrict in Butovo, will participate in its implementation. Together with private investors, it is planned to build the northern backup of Kutuzovsky Prospekt, as well as reconstruct the 63rd city hospital.

Previously, another large PPP project in the healthcare sector was implemented in Moscow. Deal between the Medsi clinic chain, controlled by AFK Sistema, and the Moscow government. In 2012, in exchange for 25% of the shares of the merged company, the Moscow government transferred 5 clinics, 3 hospitals and 3 sanatoriums to Medsi. The American investment fund ApaxPartners, specializing in medical assets, and RDIF, which together will invest about 6 billion rubles in the development of the network, were also invited to participate in the deal. The shares of the participants will be distributed as follows: half will be received by AFK Sistema, a quarter by the Moscow government, and one-eighth each by Apax Partners and RDIF.

Another example of cooperation between Moscow authorities and business in the field of medicine is the program to open private medical clinics on the first floors of city-owned buildings.

Public-private partnership in Ukraine

In October 2010, the Law of Ukraine “On Public-Private Partnership” came into force - a law that reflected the point of view of the Ukrainian state regarding the principles, forms and conditions of interaction between business and the state.

Public-private partnership as a way of organizing public-private legal relations has been known to Ukrainian business for a long time. In practice, it is expressed in the forms of joint activities, management of state property, leasing of state property, concessions and others. The new law actually reproduces the picture of public-private partnership that exists in practice, adding to it the desired touches for the state. The term “public-private partnership” was introduced as a political and managerial rather than a legal category. It is defined as cooperation between the state, represented by its bodies, and business entities, based on an agreement. More details about public-private partnerships in Ukraine can be found on the Ukrainian-language page/

Sectors of application of public-private partnership

It is important to identify the highest priority sectors for the application of PPP for each country and region. Attracting investments in all sectors of the economy at once in full is practically impossible, and besides, there are those sectors that need to be invested in the first place. In addition, the industries in countries with different levels of economic development in which the government of the country believes should be invested through the involvement of the private sector differ significantly.

The relevance of PPP is also determined by the fact that currently in Russia concession agreements are used mainly in housing and communal services, in the construction of roads, railways and ports. However, PPP can be effectively used in other industries. At the stage of formation of concession legislation and the development of new methods of relations between the state and business in Russia, an important point is the identification of all priority sectors for the development of partnership.

To create a detailed industry picture reflecting the possibility of using PPP in the economy of the Russian Federation, foreign PPP experience should be analyzed.

An analysis of such experience in the use of PPP in countries with different levels of socio-economic development, implemented using the concession form of PPP, showed that such partnerships are successfully used in transport (roads, railways, airports, ports, pipeline transport) and social infrastructure (health care, education, entertainment, tourism), housing and communal services (water supply, electricity supply, water purification, gas supply, etc.), in other areas (prisons, defense, military facilities). At the same time, transport infrastructure is leading, followed closely by social infrastructure.

If we analyze the use of PPP by country, then depending on the level of socio-economic development of the country, the picture will change. Thus, in comparison with the overall picture in the G7 countries (USA, UK, Germany, Italy, Canada, France, Japan), transport infrastructure projects are far from being in first place. In the G7 countries, healthcare is in 1st place (184 out of 615 projects), education is in 2nd place (138 projects), and roads are in 3rd place (92 projects).

An analysis of foreign experience in the use of PPP has shown that each of the G7 countries has its own highest priority industry for the use of PPP. Thus, in the USA, such an industry is roads (32 out of 36 projects), in the UK - healthcare (123 out of 352 projects) and education (113 out of 352 projects), in Germany - education (24 out of 56 projects), in Italy, Canada and France - healthcare.

Thus, we can draw the following conclusion: in those countries that are characterized by the presence of a market economy, a high level of labor productivity and the level of GDP per capita consumption, where the state guarantees a high level of social protection, where the average life expectancy is high and there is a high quality of medical care and education, PPP is used more often in the healthcare and education sectors, which is dictated by state policy.

In other developed countries (Austria, Belgium, Denmark, Australia, Israel, Ireland, Finland, Spain, Portugal, Greece, South Korea, Singapore), the industry related to the construction and reconstruction of highways ranks first in terms of the number of PPPs used (93 project), followed by healthcare (29 projects), education (23 projects) and accommodation facilities (22 projects) with a very significant margin.

Thus, there is a correlation between the level of development of a country and the industry that is selected to attract investment into it through PPP. Due to the high level of socio-economic development of the G7 countries and other developed countries, the priority of the healthcare and education sectors is also determined by the policies of these states and their socio-economic development.

In contrast, in developing countries and countries with economies in transition, these sectors (with the exception of roads) will not be a priority. Considering the lower level of economic development in these countries, transport infrastructure, namely the construction and reconstruction of roads, ports, railways, etc., should take first place in terms of priority for attracting investments with the help of PPP.

Thus, in countries with transition economies (37 out of 915 projects) - countries of Central and Eastern Europe (Bulgaria, Czech Republic, Hungary, Croatia, Poland, Romania); Baltic countries (Latvia); CIS countries (Ukraine), the Healthcare and Education sectors are no longer in first place in the use of PPP - roads, the construction of bridges and tunnels, light metro, and airports are in the lead. In countries with transition economies, attention is paid to them first and funds are invested in them.

In developing countries (22 out of 915 projects) - India, Brazil, Chile, Hong Kong, Mexico, Saudi Arabia, United Arab Emirates, as in the previous group of countries, roads are in 1st place by the number of PPPs, and in 2nd place - airports, prisons and water treatment plants. This distribution primarily reflects the interest of countries in the development of these industries (individual for each type of country), since PPP makes it possible to attract private sector investments, reduce public sector costs, and distribute risks between partners.

In a number of Eastern European countries in the late 1990s and early 2000s, in connection with preparations for joining the EU, PPP methods began to be actively used in the transport infrastructure sectors and in urban areas. Projects to attract private investment in expanding the highway network, modernizing ports and airports are being implemented on the basis of structural assistance from the EU.

Moreover, the specific experience turned out to be ambiguous: along with successful ones, there were also cases of problematic, not always successful solutions.

An example of an effective PPP project is the expansion and modernization of the international airport in Warsaw. More than 85% of passengers on international flights used Warsaw airport, which required almost doubling the airport’s passenger and cargo turnover in a relatively short time. Without attracting private capital and know-how, it would be impossible to implement such a project.

Based on the results of an open European competition, the German company Hochtief AG, which developed a special PPP financing model for airports in Central and Eastern Europe, acted as a private partner of the project. A consortium was formed (the general contractor is Hochtief Airport GmbH), which included small and medium-sized enterprises from Poland and Germany as partners. Private financing was provided by a consortium of banks led by JSC Citibank. The recipient of the loans and the government partner of the project was the Polish Airports PPL agency.

The cost of the project amounted to 153.4 million euros, up to 80% of its financing (according to the cash-flow model) came from the private side. The state-owned Polish airline LOT was included in the private loan guarantee agreement and the airport use agreement. The successful completion of the work contributed to the fact that the general contractor subsequently took part in reconstruction projects on PPP principles at airports in the cities of Dusseldorf, Hamburg and Sydney.

There are frequent examples of ineffective PPP projects due to miscalculations on the part of the state.

Thus, a problematic infrastructure project was implemented in the Czech Republic. Attracting private investment in this country is carried out according to the British model of private financial initiative (PFI). The Czech experience demonstrates the potential for risks and challenges faced by an inexperienced and ill-prepared government partner. For the construction of an 80 km section of the strategically important highway D47, a foreign private developer proposed an attractive project at first glance and was awarded the contract with virtually no competition.

The public partner’s team, lacking sufficient PPP experience, was unable to adequately assess the intentions of the private contractor, who, as practice has shown, was not very keen to implement the project. The financing structure he proposed ultimately boiled down to shifting all risks to the state. As a result, the Czech government was forced to terminate the project and pay a significant penalty.

The project to reconstruct Germany's largest airport in Frankfurt am Main has been recognized as a successful model for effectively combining the interests of public and private partners. The project assumed a preliminary stage of privatization - the issue of shares, 29% of which were sold on the stock exchange (analogous to “people's IPOs”). The remaining shares were held by the state of Hesse (32.1%), the city of Frankfurt (20.5%) and the state (18.4%). Fraport JSC, formed in this way, deliberately retained the control of public investors. At the same time, the company is a private shareholder of other German airports, i.e. the private side of partnerships in them is represented by a structure with predominantly government participation.

Currently, budget financing for the development of transport infrastructure is carried out in two ways: firstly, directly - for large projects (for the reconstruction of highways and airports); secondly, indirectly - through the state infrastructure development fund.

Application of public-private partnership in Russia

Currently, the Government of the Russian Federation considers the following as priority areas for PPP:

Development of production and transport infrastructure;

Department of Housing and Utilities;

Health and Human Services;

Funding of scientific research with prospects for commercialization;

Development of innovation infrastructure.

At the same time, in Russia the risks of miscalculations by both public and private partners in PPP projects are obviously very high. A tendency has already emerged for projects to become more expensive than their original cost. The rate of increase in prices can reach 20% per year, and the reasons are not only in simple mistakes and miscalculations of the authors, but also in completely objective circumstances - the constant increase in prices for raw materials, supplies, and services. World experience shows that the only way out of this situation is to attract private capital, which means creating more attractive conditions for it compared to ordinary commercial activities.

Nevertheless, Russia has large-scale potential for the development of many forms of PPP, but for its practical implementation it is necessary to resolve a number of fundamental issues.

First, both parties to the partnership should clearly understand that effective PPP cannot be viewed simply as attracting additional resources to capital-intensive projects at all levels of government. It is necessary to take into account the real interests of both sides. Specific partnership mechanisms, developed by international experience, create the basis for a mutually beneficial and responsible distribution of the powers of the parties, without infringing on the interests of each of them. However, the possible benefits do not materialize on their own after the adoption of the appropriate regulatory package. It is necessary to understand the features of the Russian model of interaction between the state and business.

Effective partnership is possible only if the strategy for the further development of the country is completely clear and predictable. Without this, without confidence in the stability of the “rules of the game,” nothing can be expected from business other than ostentatious interest and formal participation in large-scale state projects for the purpose of self-preservation. In this case, the factor of effective entrepreneurship may be lost.

Secondly, significant progress is needed in the understanding and practical implementation of the public legal functions of the state. So far, Russian legislation does not specifically identify public legal functions and does not establish a connection between them and public property. The design of law is such that public legal functions are implemented either administratively or through civil legal functions. It is impossible to organize the distribution of powers between the parties to the partnership on such a basis. Countries with developed market economies have accumulated extensive experience in successfully finding answers to the “paradoxes of public goods,” which, taking into account domestic specifics, can be used in Russia.

Providing state support for the implementation of investment projects of national importance and carried out on PPP terms is the goal of creating the Investment Fund of the Russian Federation. In accordance with the Regulations on the Investment Fund of the Russian Federation, the following forms of providing state support as part of the implementation of PPP projects are possible:

Co-financing on contractual terms of an investment project with registration of property rights of the Russian Federation, including financing the costs of managing the investment project, as well as financing the development of project documentation;

Directing funds to the authorized capital of legal entities;

Providing state guarantees of the Russian Federation for investment projects, as well as other methods provided for by budget legislation to ensure obligations that are within the competence of the Government of the Russian Federation. State guarantees are provided to commercial organizations participating in an investment project in favor of credit institutions, including credit institutions with foreign investment;

Transfer of part of the risks to a private investor. The idea of ​​PPP makes it possible to intelligently share risks between the parties to the agreement.

When implementing state support for the private sector under PPP conditions, one should take into account the problem of determining the optimal share of investor participation in profits and in the total volume of investments, regardless of the industry in which the project is being implemented. It is necessary to establish that:

each project participant independently sets goals for himself and determines the interests in accordance with which he evaluates the profitability of the project (as a rule, this is the profit that the participant expects to receive from the investment);

The project developer should, whenever possible, understand the goals and interests of the participant and justify the benefits of his participation in the project with those indicators that better reflect these goals and interests. In this case, the investor’s share of participation in capital costs can range from 0 to 100%.

The formation of incentives for investment activity should be based on the creation of opportunities to achieve maximum profitability. Investors do not need temporary benefits, but long-term guarantees of return on invested capital. If this is not the case, then an increase in business risk leads to a reduction in investment supply and the “flight” of capital from the country. In turn, in exchange for the provided legal guarantees of stability, the state can insist on new forms of control and transparency of reporting.

In order to attract investors in investment projects implemented under the PPP scheme, the state can apply investor incentive measures (subsidies, subventions, direct reimbursement of investment costs, etc.) to ensure the return required by the investor. It is important to take into account that the state, when concluding an agreement with an investor, is guided not only by purely entrepreneurial, “business” motives, but also by public interests, socially necessary goals, public utility, which often require a deviation from market, private law criteria for state behavior.

Thus, a new mechanism for attracting investment has been launched in Russia and a dialogue between the state and business has begun. The state is ready to provide financial assistance to PPPs and also assume some of the risks. There remains a need for the public sector to ensure that the selection of financing options and project implementation is carried out at a highly professional level, since Russian PPPs will have to compete with PPPs already operating in the global market.

Introduction

Chapter 1 Theoretical foundations for analyzing public-private partnerships

1.1 Concept, emergence and structure of public-private partnership. Conceptual framework for public-private partnerships

1.2 Main models and forms of partnership

Chapter 2. Development of public-private partnerships in the global and Russian economy

2.1International experience of interaction between the state and private business

2.2 The practice of introducing public-private partnerships in Russia: results and development problems

Currently, a new special form of interaction between the state and private business – public-private partnership – is becoming widespread in the economies of a number of developed and developing countries. A public-private partnership is an organizational and institutional association of the state and private business for the purpose of implementing socially significant projects throughout the country or individual territories. Significant changes are taking place in the forms and methods of managing industrial and social infrastructure, which are traditionally state-owned: utility and energy networks, sea and river ports, airports; healthcare, education, law enforcement and military fields.

These changes characterize the weakening of the direct influence of the state in the economy and the parallel strengthening of its state regulation in various forms. The reason for this behavior is the state’s dissatisfaction with the work of public services to provide and serve society. The resulting corollary is a public-private partnership.

Yet such changes and strategies create particular uncertainty, and the study and analysis of public-private partnerships is relevant and of scientific interest. This topic was considered and analyzed in the works of various authors, especially V.B. Varnavsky, O. Williamson, D. Grimsey, S.A. Karpov, M. Lewis, P. Rosenau.

The purpose of the work is to analyze public-private partnerships in the international and Russian markets.

The goal defines the following tasks:

Identify the theoretical foundations for the analysis of public-private partnerships and the features of this concept;

Consider the main models and forms of public-private partnership;

Conduct an analysis of interaction between the state and private business in the international and Russian markets;

Identify the existing difficulties in the development of public-private partnerships and analyze the trend in the development of a new economic relationship in the Russian economy.

It is worth noting that general theoretical aspects are covered in systematic courses on microeconomics. The methodological and theoretical basis of the study was made up of several groups of sources. The first includes textbooks: “50 lectures on microeconomics”, ed. M.N. Gryaznova, N.L. Yudanova, “State and business: basics of interaction” Shamkhalov F., “Economics. Introductory course" Samuelson P.A.; Modern economic dictionary (Raizberg B.A).

The second includes scientific articles by M. Airapetyan, D. Amunts, V. Varnavsky, M. Deryabina, O. Zhilina, A. Filatov, in periodicals: “Auditor”, “Economy Issues”, “World Economy and International Relations”, “Problems of theory and practice of management”, “Russian entrepreneurship”, “Russian Federation today”, “Modern Europe”.

1.1 Concept, emergence and structure of public-private partnership. Conceptual framework for public-private partnerships

The economies of a number of developed and, more recently, developing countries are widely using a new special form of interaction between the state and private business. This is a special form of partnership, usually referred to as PublicPrivatePartnership (PPP). In Russian literature, the term public-private partnership is used, based on a clear definition of the leading role of the state in Russian realities.

This form is based on weakening the direct influence of the state in the economy, transferring functional powers to the private sector and simultaneously maintaining and strengthening its regulation. The state is a kind of agency for the sale of socially significant goods and services. It can produce some parts of these goods on its own, and the rest by attracting the capabilities and capabilities of the private sector. Business is invited to participate in the management of state assets for the improvement and high-quality implementation of state projects.

Public-private partnership is a form of activity between the state and the private sector, with the aim of developing the most significant infrastructure facilities and providing quality services to business entities and society.

“Public-private partnership is a specific, various types of form of interaction between the state and the private sector in the economic sphere, the fundamental feature of which is the balance of interests, rights and obligations of the parties in the process of its implementation.”

Actually, the term “public-private partnership” (PPP, PublicPrivatePartnership) appeared in the early 90s. XX century And it is connected mainly with the “British model” of PPP. In 1992, the government of D. Major announced the “Private Finance Initiative” (PFI), which was a modernized concept for managing state property. The essence of PFI was to transfer to the private sector the functions of financing (construction, reconstruction, operation, management, etc.) of social, cultural and industrial infrastructure facilities owned by the state, within the framework of contracts and agreements on public-private partnerships. This fundamental change in the public administration system in Great Britain entailed a significant transformation in the institutional environment, as well as in the relationship between the state apparatus and private business.

Considering the intensive development of diverse forms of PPP in all regions of the world, application in various sectors of the economy, this form of interaction can be interpreted as a characteristic feature of a modern mixed economy.

Let me remind you that a mixed economy is an economy with elements of a market and a command form of management. This is some kind of alternative form of management. There has never been a 100% market economy, although England came close to such a system in the 19th century. Currently, in the United States, much of the decision making is made by the market. However, the role of the country's government does not fade away; on the contrary, the state plays an important role in the operation of the market: it issues decrees and regulations regulating the economic environment, provides services in the field of health care, education and law enforcement, controls business and environmental pollution.

Let's consider the concept of PPP according to the analysis of V. Varnavsky:

1. It is worth emphasizing the indicated point that PPP is a semi-privatization form, i.e. the state, transferring ownership rights to manage infrastructure facilities to the private sector, remains the owner of these facilities;

2. The state unilaterally performs its fundamental functions of life support for the population and enterprise, and remains responsible to society for the functioning of infrastructures;

3. To ensure an appropriate level of services, private enterprises are created a certain system of control and regulation;

4. The interaction of the parties in PPP is fixed on an official, legal basis (agreements, contracts, contracts, etc.);

5. In the process of implementing PPP projects, the available assets of the parties

(resources and inputs) are pooled;

6. All risks in PPP projects are shared between the state and business in proportions, in accordance with mutual agreements recorded in the relevant agreements, contracts, agreements, etc.

Each project participant contributes to the development of the overall project. For example, a business provides financial resources, professional experience, flexibility, rapid adaptation and efficiency in decision-making, demonstrates effective management, and innovative abilities. At the same time, so-called “know-how” is being introduced in technologies and management methods when implementing projects, and relationships are being established with suppliers and contractors, which increases the demand for highly qualified workers in the labor market.

The state ensures property rights, provides all kinds of benefits and guarantees, as well as financial resources. Under PPP, the state develops its main functions - control, regulation, observance of public interests.

The interest of business is determined by the interest in maximizing profits from the implementation of projects, because With economic freedom in projects provided by the state, the private sector strives for increased productivity and innovation. Secondly, a business, in the event of an unsuccessful set of circumstances during the implementation of a project, receives sufficient guarantees of the return of funds invested in the implementation of the project, since the state bears certain risks (according to agreements of the parties). In some cases, with high-quality service, the state pays its partner extra. And lastly, the private sector receives state assets for long-term management on preferential payment terms.

The interest of the state lies in the fact that it can shift part of the costs of maintaining and investing property to the private sector. Also, through rental and concession payments, government agencies receive an additional source of budget revenue.

What does the population have to gain from all this? After all, all government actions should be aimed primarily at improving human well-being. The positive aspects of the partnership include improving the quality of goods and services, and secondly, social and economic problems are being solved. And also, the state can now spend the already released funds on solving other more significant tasks and performing its priority functions.

I will exercise the right to return to the definition of partnership. As already noted, this is a special form of interaction between government agencies and private enterprises. The key word here, in my opinion, is the word interaction, i.e. partnership, concerted actions, interests and decisions of the state and the private sector. If interaction occurs, it means that the state and business have found common interests. The question is, in which sectors can this happen? According to the concept of liberals, the limits of state intervention should be significantly reduced, “the market is a self-regulating environment, or that private property is much more effective than state property.” Under the influence of the unfavorable state of the economy of some countries and these stereotypes, the governments of these countries began to intensively apply a new policy - privatization. As you know, the consequences were not the most comforting - there was a divergence in the goals of the state and private interests. To correct the situation, new forms were needed. PPP has proven to be most successful in some privatized countries (with the exception of Russia). PPP is a semi-privatized form, therefore, privatization is not cancelled. Of course, there are areas where private enterprises can operate without government support and intervention, but the traditional areas of government responsibility: infrastructure, national defense, education, etc., are of little interest to business and may ultimately disappear. which can lead to a violation of social and economic security, therefore such assets cannot be transferred into private hands. This implies the right to define PPP as a kind of alternative to privatization.

So how do you find that same interaction? How to attract investors to implement government projects? Business often does not see the specific goals of the state and its willingness to cooperate.

Firstly, the state must recognize cooperation with the new subject of the market economy and must determine the areas and goals of the implementation of socially significant projects.

Secondly, strengthen the legislative framework for PPP.

And lastly, this is the creation of an administrative apparatus ready to implement the created projects.

1.2 Main models and forms of partnership

The analysis of causes should be complemented by an analysis of patterns and forms. After all the above conditions are met, government agencies and the private sector enter into a partnership, which is secured by certain agreements, contracts, agreements, etc. Depending on the intensity of the tasks being solved within the framework of PPP, all existing forms of partnership can be classified into separate models. For PPP tasks, organizational models, financing and cooperation models are distinguished.

At organizational model there is no deep intrusion into property relations; cooperation is concluded through the involvement of third parties, organizations, “assignment of individual functions and contractual obligations, use of opportunities to transfer objects to external management”

This model includes the most common type – concessions. Financing model represents commercial hiring, rent, leasing and various forms of financing. Cooperation model this is a combination of efforts of partners, presented in various forms and methods, to create new consumer value as a public good. Typically, such cooperation is a complex structure, especially in the field of production.

PPP forms are:

Government contracts as an administrative agreement drawn up between the state and a private firm for the implementation of particularly useful and necessary activities: contracts for the performance of work on financing, design, construction, for the provision of public services, for management, for the supply of government needs, for the provision of technical assistance, etc. d. The peculiarity of this form is that the state does not transfer ownership rights to the private entrepreneur. All activities under the contract (construction, purchase of materials) are carried out with state funds, and the private sector acts as a contractor and does not have the right to arbitrarily dispose of the funds received. The private partner’s interest lies in the resulting share of income and profit. However, it should be noted that this is a very attractive business, because in addition to stable income, all sorts of benefits and a certain prestige are provided.

Rent of state property(buildings, equipment, etc.) and in form leasing. The meaning of lease relations is the transfer of state and municipal property to the private sector for temporary use and for a certain fee. Traditionally, the leased property is expected to be returned to the lessee, while the right of disposal remains with the state, but exceptions are possible in the form of repurchase of the leased property in specially specified cases. The main feature is that the state receives profit in the form of rental payments. In the case of leasing, the lessee, i.e. The private sector in any case has the right to purchase leased state or municipal property.

Public-private joint ventures. They are created mainly through corporatization or on the basis of equity participation of the parties without issuing shares. The degree of freedom of the private sector is determined by the parties' share of capital. Also, depending on this share, risks are distributed between the participants.

Concessions(concession agreement) is a form of relationship between the state and private business that is becoming increasingly widespread. The peculiarity is that the state, while remaining the full owner of the property, authorizes the private partner to perform certain functions, which are specified in the agreement, for a certain period of time, giving it the corresponding powers. One of them is that he receives the exclusive right to prevent similar activities by other persons and the state itself. For the use of state or municipal property, the concessionaire pays a fee specified in the agreement. The concessionaire receives ownership rights to the produced products. Under this agreement, the concessionaire (private partner) is obliged to submit to the requirements of public interests, provide the relevant services, make them publicly available and set the same tariff for these services. In case of circumstances that pose a threat to society, the state takes legal measures not specified in the agreement.

Production sharing agreements. This form resembles a traditional concession, but still has some differences. The concession states that the manufactured products fully belong to the concessionaire; in the case of this form, the private partner of the state has the right only to a part of it, which are stipulated in a special agreement.

There are several types of concessions, but we will focus on some of them:

SUP, (BOT) (construction - management - transfer (Build, Operate, Transfer)).

Here, an infrastructure facility is created at the expense of the concessionaire, who, after completion of construction, receives the right to operate the constructed facility for a period sufficient to recoup the investment. After this, the object is transferred to the state. The private partner has the right of use, but not ownership.

SVUP, BOOT (construction – ownership – management – ​​transfer (Built, Own, Operate, Transfer)). In this case, the private partner receives the right to use and possess the property during the term of the agreement. After this, the object is transferred to public authorities.

SVU,BOO (construction – ownership – management (Built, Own, Operate)). In this situation, the created object, upon expiration of its validity period, is not transferred to public authorities, but remains at the disposal of the investor.

PSVUP, DBOOT (design - construction - ownership - management - transfer (Design, Build, Own, Operate, Transfer)). A peculiarity of agreements of this type is the responsibility of the private partner not only for the construction of an infrastructure facility, but also for its design.

Summarizing the above, we can talk about the significant impact of public-private partnerships and their results: this is the development of new sectors of infrastructure and society, this is the influx of investment and the movement of capital in those sectors where there was some “stagnation”, the development and introduction of technologies and new methods management and organization. Public-private partnerships are a key component of the new innovation policy because, when done well, they provide broader benefits from public research investments, creating favorable conditions for sustainable innovation development, which is a strategic driver of economic growth.

To carry out an analysis and clearly present the structure of partnership development, we should probably start by studying the evolution of PPP as a complex phenomenon, which reveals an obvious relationship between the level of its presence in the economy and the dominant state ideology. This is how some of the first partnerships arose in France. In 1842, the first railway law was passed there, which established a regime of state concessions granted to railway companies.

At the turn of the 19th – 20th centuries, partnerships appeared in Germany and France in the housing and communal services sector. In 1882, Paris signed a contract with the Perrier brothers to supply energy to the central regions. At the beginning of the 20th century, under the influence of Marxist ideology and the theory of John Keynes, significant changes occurred in the state approach to projects. All industries were transferred under state control.

However, by the end of the 20th century, interest in PPP appeared in connection with the emergence of a new economic neoclassical theory, which spoke of private property as the main driving force of social development. Subsequently, a new course was taken to attract private capital and mass privatization of state-owned enterprises.

The leader in applying the new course was Great Britain. The government of the country has developed a concept for managing state property - the “private financial initiative” (PFI). Earlier, in 1988, a law on local self-government was adopted. This legal act granted local authorities the authority to enter into agreements with representatives of private capital to provide appropriate quality services at the regional level.

Further, the governing bodies of the European Union showed interest and increased activity. Since 1992, directives have been actively created that set out the rules and procedures for implementing this policy. Institutions for managing and regulating PPPs also began to form in the form of: agencies (Great Britain, the Netherlands, Ireland), joint-stock companies and state corporations (Italy), associations (France).

So, the starting point was set - the widespread and active use of public-private partnerships began in various countries and regions. It is important to determine the highest priority sectors for the application of PPP. Investing in all sectors of the economy at once is impossible, and besides, there are also sectors where it is necessary to invest first. Among other things, the industries in which private capital needs to be attracted vary significantly in countries with different levels of economic development.

According to the analysis of the use of PPP in various countries, carried out by domestic economists, it can be seen that the partnership is successfully used in transport (roads, railways, airports, ports) and social infrastructure (health care, education, tourism), housing and communal services (water supply, electricity supply, gas supply ) and in other areas (prisons, defense, military facilities).

If we analyze the use of PPP by country, the picture will be as follows. In the G7 countries (USA, UK, Japan, Italy, France, Germany, Canada), healthcare is in 1st place (185 out of 615 projects), education is in 2nd place (138 projects) and in 3rd place is place - roads.

An analysis of the use of PPP projects separately for each G7 country presents: USA – roads (32 out of 36 projects), UK roads make up 123 out of 352 projects and education (113 out of 352 projects), In Germany – education (24 out of 56 projects ) (Table 1)

Considering other developed countries (Austria, Belgium, Denmark, Australia, Israel, Ireland, Finland, Spain, Portugal, Greece, South Korea, Singapore), the picture is as follows: the first place is taken by the use of PPP in the construction of roads and their reconstruction (93 projects) , followed by healthcare (29 projects), education (23 projects). (Table 2).

In developing countries and countries with economies in transition, the above sectors (except roads) will not be a priority. Due to the lower level of socio-economic development in these countries, transport infrastructure (construction, reconstruction of railways, airports, ports) takes 1st place.

In countries with economies in transition, namely the countries of Central and Eastern Europe (Bulgaria, Czech Republic, Hungary, Croatia, Poland, Romania); Baltic countries (Latvia); CIS countries (Ukraine) are leaders in the use of PPP - roads, construction of bridges and tunnels of light ground metro, airports. Special attention is paid to them and funds are invested in them first.

Developing countries (22 out of 95 projects) - India, Brazil, Chile, Hong Kong, Mexico, Saudi Arabia, United Arab Emirates give priority to roads, with airports, prisons and water treatment plants taking 2nd place.

In a number of Eastern European countries, at the end of 1990 – beginning of 2000, PPP methods began to be actively used in the transport infrastructure sectors and in urban areas, in connection with the preparation of accession to the EU.

What is the reason for such a difference in the application of partnership in different countries? Firstly, there is a difference in economic development (there are the most developed economic systems and those that are backward in socio-economic development). Secondly, state policy influences the development of certain structures - (where there is a stable market economy, high GDP), the state guarantees a high level of social protection, where the average life expectancy is high and there is a high quality of medical care and education. Another factor is the interest of countries in the development of these industries (individual for each type of country), since partnership makes it possible to attract private sector investments and distribute risks between partners in ongoing projects.

Just as with all innovations, public-private partnership projects have seen very successful results and not entirely successful experiences when mistakes are made in business planning and institutional principles are neglected, which later are the reasons for the termination of projects and their nationalization.

Let's consider an example of the effective use of a PPP project - the expansion and modernization of the international airport in Warsaw. More than 85% of passengers on international flights used Warsaw airport, which required almost doubling the passenger and cargo airport in a relatively short time. But it was not possible to develop such a project to the required scale without attracting private capital, new developments and technologies.

Based on the results of an open European competition, the German company Hochtief AG, which developed a special PPP financing model for airports in Central and Eastern Europe, acted as a private partner of the project. A consortium was formed (an organizational form of temporary association of independent enterprises and organizations created to implement projects, including investment, scientific and technical, environmental, etc.), which included small and medium-sized enterprises from Poland and Germany as partners. Private financing was provided by a consortium of banks led by JSC Citibank. The recipient of the loans and the government partner of the project was the Polish Airports PPL agency.

The cost of the project was 153.4 million euros, 80% of its financing was provided by the private party. Polish state-owned airline LOT was included in a private loan agreement for the use of the airport. The work was completed very successfully, and subsequently the general contractor took part in reconstruction projects on PPP principles at airports in the cities of Dusseldorf, Sydney and Hamburg.

Another example of the effective and successful use of PPP in the implementation of infrastructure projects based on private financial initiative is observed in Japan. The economic downturn in the 1990s (economic recession) forced the Japanese authorities to resort to the English experience, slightly changing the concept and rules, and adopting the corresponding legislative framework. Since 1999, the Law on promoting the development of public projects through the use of private financing has been introduced. This was a truly significant event, since previously the state and government agencies were responsible for the implementation of infrastructures. The point of everything was to attract private investment for the construction of large state and socially significant infrastructure facilities, when business itself carried out the construction of a state facility at its own expense. Compensation for expenses is subsequently carried out through payments from the budget, or through operating income. The result of this was the rapid development of projects (by 2008 - 333 projects), outstripping the indicators of the English country.

But, as noted above, it is not uncommon for PPP projects to be ineffective due to miscalculations on the part of the state.

Thus, a problematic infrastructure project was implemented in the Czech Republic. Private investment in this country is attracted using the British private finance initiative (PFI) model. This country's experience highlights the dangers and challenges that a government partner may face if it has insufficient experience and training in implementing and implementing partnerships. So, for the construction of a section of the D47 highway, 80 km long, a private entrepreneur proposed a very interesting and attractive project at first glance, for which he received a non-competitive contract.

The problem itself was the lack of sufficient PPP experience and the underestimation by the public partner team of the intentions of the private contractor, who, in turn, initially did not have much desire to implement the project. Ultimately, the financing structure he proposed boiled down to shifting all risks to the state. And the result was the termination of the project, and the payment, among other things, of a significant penalty.

The project to reconstruct Germany's largest airport in Frankfurt am Main has been recognized as a successful model for effectively combining the interests of public and private partners. The project involved a preliminary stage of privatization - the issue of shares, 29% of which were sold on the stock exchange. The remaining shares were held by the state of Hesse (32.1%), the city of Frankfurt (20.5%) and the state (18.4%). Fraport JSC, formed in this way, deliberately retained the control of public investors. At the same time, the company is a “private” shareholder of other German airports, i.e. The “private” side of partnerships in them is represented by a structure with predominantly government participation.

Currently, funds for the development of transport infrastructure are provided in two ways: directly - for large projects and indirectly - through the state infrastructure development fund.

Thus, based on the above, the following conclusions can be drawn:

1. There is a significant difference between the level of socio-economic development and priority sectors for the use of PPP projects in them;

2. In any country of each subgroup, the government selects the highest priority industry for the implementation of PPP projects (depending on the degree of importance and feasibility of implementation). For example, in the UK and Italy, PPP transactions were carried out mainly in the construction of roads and railways;

3. To a greater extent, successful interaction between the interests of the state structure and private representatives, as well as complete clarity and predictability of the strategy for the further development of the country;

4. In each country, specialized institutions have been created that are responsible for carrying out certain activities throughout the country. For example, in the UK these are “public corporations”, in Japan these are public or public law enterprises (koteki kigyo), in Sweden the right to engage in business is given to executive authorities;

5. A broad and orderly regulatory framework that regulates contractual relations in various industries and makes it possible to most fully take into account the diversity of operating conditions in various areas.

Having analyzed various options for interaction between business and government on a global scale, we will consider the development and success of relations between the public and private sectors in Russia.

In the life of the Russian economy, the very possibility of partnerships between the state and business seemed unlikely until the beginning of this century. In Soviet times, the state, with the leading role of the party, played the role of a strict but prudent guardian, taking care of accelerating growth, restructuring the economy, etc., with the development of liberal reforms, the opposite trend emerged - the liberation of the economy from direct government intervention that dominated the economic strategy, due to the weakness of economic regulation mechanisms during the recession in the second half of the 90s. As a result, a mutually beneficial partnership between the state and business was recognized as a necessary element of state policy only in the early 2000s, when the transition from an economy based on the exploitation of primary industries to a knowledge economy and the development of high technologies became urgent in the economic life of the country. As a result, issues related to clear legislative support for the development of partnerships and the definition of the very concept of public-private partnership have acquired paramount importance. The questions became especially acute when signs of the global financial crisis appeared.

In Russia, the legislative definition of public-private partnership appeared in 2005 in the sections of the Civil Code defining types of ownership, as well as in the provisions of the Constitution of the Russian Federation on the recognition and protection of forms of ownership. The main regulations adopted in 2005: 1) federal laws “On concession agreements”, “On special economic zones in the Russian Federation”. According to the law, a special economic zone is considered to be a part of the territory of the Russian Federation in which a special regime for entrepreneurial activity applies: tax, customs, visa and licensing. Next is the law “On placing orders for the supply of goods, performance of work, provision of services for state and municipal needs” (the share of government orders for small businesses is 10-20%). It should be noted that the mechanism of interaction between the troika of economic entities - the state, business structures and non-profit organizations - has been partially worked out in the recently adopted Law “On Autonomous Institutions”. It, in particular, provides for the creation of an institution of supervisory boards, which includes representatives of executive authorities, business, non-profit organizations, as well as independent experts and scientists; 2) federal laws “On the Development Bank”, “On seaports in the Russian Federation”, “On highways”. A state Investment Fund, a Venture Company and a Development Bank have also been formed. 3) Government Decree “On state accounting of the results of research, development and technological work for civil purposes.”

Specific examples in the field of interaction between the state and business are, of course, the so-called special economic zones, of which there are currently eleven. And the first was organized in the Republic of Tatarstan, in Elabuga, in December 2005. Its formation is proceeding quite dynamically: on an area of ​​20 square kilometers, the construction of the infrastructure of the first complex, including an administrative and business center, a customs terminal, roads and utility networks, has been completed. To date, five companies with a total investment volume of more than $330 million have been registered as residents of the Alabuga SEZ. The release of the first product of one of the zone's enterprises - the Fiat Ducato car - was planned for the beginning of 2008.

Positive experience in the development of public-private partnerships has been accumulated in St. Petersburg. On December 20, 2006, the Legislative Assembly of the city adopted the Law “On the participation of St. Petersburg in public-private partnerships”, the goals of which were:

1) implementation of socially significant projects in the city;

2) attracting private sector investment in the economy of St. Petersburg;

3) ensuring the efficient use of property owned by St. Petersburg;

4) improving the quality of services and work provided to consumers.

This law establishes the procedure and rules for the transfer of state property of St. Petersburg or rights to implement various types of activities to the private sector. It makes it clear to the investor in which projects and under what conditions the city is ready to enter into public-private partnership relations. There are no such laws in any subject of the Russian Federation yet.

Examples of project implementation in the Russian Federation and St. Petersburg:

In 2002, the South-Western wastewater treatment plant was built (in this case, upon completion of construction, the investor’s special project company (SPK) receives ownership of the facility);

Moscow - St. Petersburg expressway (based on concessions);

The Oryol Tunnel project under the Neva River has been implemented;

Project for reconstruction and development of Pulkovo Airport;

Construction, reconstruction and operation of wastewater treatment plants in Yuzhny Butovo and Zelenograd (Moscow);

Reconstruction of waste incineration plant No. 3 in Moscow.

Currently, foreign investors have shown significant interest in Russian public-private projects. In particular, the most widespread law firm in Russia and around the world is the AllenandOvery company, which provides consultations to state governments, sponsors of project companies and their creditors

Examples of PPP projects in Russia:

Highway M-1 "Belarus", Moscow - Minsk;

Complex of petrochemical plants in Nizhnekamsk, Tatarstan

Construction of schools in the Moscow region

Project "Nadex" - light metro in St. Petersburg;

Having analyzed the available data on the implementation of Russian PPP projects, we will outline the main successes in this area:

1. political support for infrastructure development under PPP conditions at all levels;

2. the beginning of the implementation of a wide range of projects worth over $1 billion over the past 10 years;

3. As part of the activities of the Ministry of Transport and the state company Rosavtodor, systematic preparation of new competitions for federal transport infrastructure facilities is being carried out. In Udmurtia, preparations are underway for a regional concession competition for the construction of a large road bridge;

4. development of the legislative and institutional framework for PPP at the federal and regional levels;

5. interest of foreign investors in the implementation of Russian projects.

But along with successes and results, there are also some difficulties and gaps in the implementation of projects:

1. there is no coordination of actions of government bodies in the development and implementation of projects. Each ministry tries to oversee its own projects and create its own programs;

2. The big disadvantage is that our legislation does not contain special provisions specifically regulating this or that aspect of the implementation of PPP projects. Even the very definition of public-private partnership is not enshrined in law, which could be done within the framework of the adoption of a federal law or regulation on PPP. Procedures for protecting projects and interests of private investors have not been regulated;

3. lack of financial resources and ineffective use of available funds;

4. distrust of municipal authorities towards private operators;

5. municipal assets are not always registered in accordance with the established procedure, and therefore cannot be transferred to the management of the private sector;

6. gaps in investment agreements and lack of judicial practice to resolve controversial issues;

7. lack of a unified concept of public-private partnership, hence problems with the legal support of projects, poorly structured agreements, economic models and acceptable financial mechanisms of little interest to investors;

8. lack of a single center for developing a common position of government bodies, coordinating their activities in the implementation of decisions made.

Analyzing the development of partnerships in foreign countries, I especially want to emphasize the fact that these countries are ready for new changes and the development of special economic relations, that the representatives and governments of the countries have a clear direction of activity with the private sector, have a sufficient and voluminous number of projects for the implementation of strategically important objects, depending on the level of development of the country and its economic situation. Also, specialized institutions are particularly developed and are responsible for carrying out certain activities throughout the country. All this speaks in favor of the most successful development of public-private projects and their significant impact on the economies of countries.

Summarizing the analysis of the development of partnerships in a number of foreign countries, and correlating everything with the Russian analogy, we can conclude that the development of public-private partnerships in Russia is possible and especially necessary, since the country is at a difficult stage of economic development, and there is also a developing economic crisis .

Prospects for transition to a higher level of development of the PPP market depend on internal and external economic, institutional and political factors. Despite the rapid development in global financial markets and the significant deterioration of the economic situation in Russia, institutional investors are ready to invest in projects with low risk and moderate requirements for the initial investment amount. Particular attention is paid to the development of public-private projects in the field of transport infrastructure, housing and communal services, energy, as well as industry and construction. This implies significant changes in the attitude of private operators, a transition to the possibility of a rational combination of free competition with government regulation measures and ensuring the interests of society.

Summarizing all the indicators and possibilities of public-private partnership, I would like to speak in favor of such a new form of relationship between the state and private business. Firstly, public-private partnership is one of the mechanisms of a mixed economy, allowing for the development of relations between business and the state, secondly, it is the opportunity for the state to find a source of budget revenues, and for the private sector, the opportunity to own and dispose of state and municipal assets, as well as the opportunity to receive various government privileges. Thirdly, combining the efforts of the state and private entrepreneurship within the framework of specific projects creates their additional competitive advantages. And lastly, this is a successful mechanism for finding economic and social consensus, introducing new developments and technologies, with the help of ideas, logical and cold-blooded reasoning of business, combined with the orderliness and power of government structures.

Public-private partnership in the modern world, with competent and rational behavior, is a mechanism that can become the basis for the creation of high-tech corporate structures designed to ensure that business and the state are oriented toward solving problems related to bringing the real sector of the economy out of the financial crisis.

The PPP toolkit allows for more efficient spending of public funds for the implementation of infrastructure projects in the field of transport, housing and communal services, education, healthcare, the creation of innovative technologies, etc.

All over the world, PPP projects are implemented through the participation of financial development institutions. The maximum multiplier effect is achieved in those projects where PPP tools are used comprehensively.

During the Second World War, in small American towns, business and government successfully cooperated to achieve common goals, relying on the traditions of communal cooperation. The actualization of the idea of ​​partnership between the state and business occurred as a result of the privatization policy pursued in the USA and Great Britain in the 1980s.

The state, which sought to exit the sphere of production of public goods, saw in such a partnership an opportunity to improve the quality of public goods while simultaneously reducing the cost of their production for society.

Despite the fact that neoliberal economic policy was generally based on programs to increase competition, public-private partnerships, which are based not on competition, but on cooperation and risk sharing between the state and business, have become one of the mechanisms for transferring part of government functions to private enterprises. An inevitable consequence of the partnership was the blurring of the boundaries between the public and private sectors, since for its successful implementation, government agencies were forced to start thinking and acting in the logic of private enterprises, and private businesses were forced to master the state logic and open their internal kitchens to public control.

Currently, the idea that PPP is an integral part of neoliberal privatization programs, the withdrawal of an ineffective state from those areas where it can be replaced by effective private business, is shared by fewer and fewer researchers, and primarily because the sectors themselves have changed, and there was a mutual rapprochement between them.

Thus, in the private sector, practices of social corporate responsibility appeared and began to rapidly develop, while in public administration, negotiations began to increasingly precede, and in some cases replace, orders and directives. As a result, the conceptual basis of PPP becomes the task of reforming management in both the private and public sectors, coming from the needs of countries to adapt to the global economy, the development of information technology and growing pressure from consumers interested in quality products and services. Talk about an ineffective state that should transfer the production of public goods to efficient private business is a thing of the past.

In world practice, the most successful experience, widespread application and high level of development of forms of PPP are observed, as a rule, in highly developed countries of Western Europe and North America. As for the promising economic leaders (China, India, Russia, Brazil, etc.), they are still noticeably inferior to them both in the degree of development of PPP forms and in the breadth of application.

Interest in public-private partnerships arose quite a long time ago: the first construction of a canal on a concession basis in France dates back to 1552. PPP in concession form has been actively used by many countries, especially for the construction of railways. Active interaction between business and the state took place in the 30s of the twentieth century, but in pre-war and war times such interaction was more of a forced nature, associated with overcoming the global economic crisis, the organization of the war economy, and the post-war restoration of the national economy.

Many developing countries that adopted PPPs in the mid-1990s faced chronic inefficiencies, poor pricing policies, and corruption in critical infrastructure departments. This meant that service providers in these sectors were financially insolvent and could not provide adequate services to their consumers, let alone expand services. Governments were forced to take financial recovery measures because... could no longer support unprofitable enterprises. Private sector participation in infrastructure development was a way to reduce the leakage of public funds. It was expected that private sector participation would lead to more efficient service delivery. On the other hand, government authorities intended to take measures to rationalize pricing methods and improve companies' access to private capital.

Expectations led to a boom in PPPs in developing countries in the 1990s. Between 1990 and 2001, more than 130 low- and middle-income countries adopted programs to involve the private sector in infrastructure projects.

At the same time, the private sector participated in 2.5 thousand infrastructure projects, attracting an investment volume of 750 billion US dollars. The peak of the boom occurred in 1997 - the beginning of the financial crisis in East Asia. The financial crisis, catastrophic currency devaluation and subsequent economic slowdown have had a negative impact on many PPP contracts. If before 1997 there was a constant increase in private investment in infrastructure projects, then after the financial crises of 1997-1998 there was a decrease in it.

In particular, in Europe and Central Asia in 2001 there was a sharp drop in private investment in infrastructure - to 6.5 billion dollars, which is 3.5 times less than the level of the previous year and 2.5 times less than the level of 1997.

Between 2003 and 2005, an increase in private sector investment in infrastructure projects based on the PPP principle was observed in most developed countries.

Table 2.1. Dynamics of development of the market for PPP projects in some countries of the world (millions of dollars)

In the UK there are a total of 725 PFI projects valued at over £100 million since 1987, with a total capital value of £47.5 billion (approximately 500 of these were underway in mid-2006).

Currently, in most countries of the world, economic development is characterized by the consolidation of the efforts of the state and the private sectors in finding new forms and methods of creating, managing and regulating infrastructure. PPP projects are a real mechanism for interaction between the public sector and private capital in the field of creation, modernization, maintenance and operation of infrastructure facilities. As a rule, various countries begin their program for the development of public-private partnerships with concession projects in the road industry (toll roads, bridges, tunnels).

The "self-financing" nature of such projects (at least from a government budget perspective) makes them very attractive. However, in world practice, PPP mechanisms are used in many other areas

The purpose of public-private partnership ( PPP) - development of infrastructure in the interests of society by combining the resources and experience of each party, implementation of socially significant projects with the lowest costs and risks, subject to the provision of high-quality services to economic entities. PPP- a qualitatively new and effective way to attract investment, since partnerships of this type can not only contribute to the growth of the city’s economy, but also develop the city’s socially important infrastructure.

The term "" is a translation of the world-wide concept of public-private partnership. In foreign countries, as in Russia, the term “public-private partnership” is sometimes used to emphasize the priority role of the private sector. But we believe that, based on the content of the concept " public private partnership"and modern Russian realities, in Russia it is advisable to use the term " public private partnership", which clearly defines the leading role of the state.

PPP in the world economy

An emergency by its economic nature is the result of the development of traditional mechanisms of interaction of economic relations between government and the private sector for the purpose of development, planning, financing, construction and operation of infrastructure. Thus, the partnership between the state and the private sector can be characterized as long-term interaction with the aim of attracting additional sources of financing and achieving the successful fulfillment of the municipality’s duties. Consequently, there is a need to determine the highest priority industries for application. PPP for each country and region. Attracting investments in all sectors of the country's economy at once in full is practically impossible, and besides, there are always those sectors that need to be invested first. In addition, the industries in countries with different levels of economic development in which the government of the country believes should be invested through the involvement of the private sector differ significantly. In this regard, in July-August 2006, we conducted a study to identify priority industries for use PPP in foreign countries.

The relevance of this work is also determined by the fact that today in Russia concession agreements are used mainly in Housing and communal services, during the construction of roads, railways and ports. However, as the study showed, PPP can be effectively used in other industries. At the stage of formation of concession legislation and the development of new methods of relations between the state and business in Russia, an important point is the identification of all priority sectors for the development of partnership. In order to create a detailed industry picture reflecting the possibility of application PPP in the economy of the Russian Federation, we conducted an analytical analysis of foreign experience in public-private partnerships.

Analysis of randomly selected 915 foreign projects in countries with different economic developments, implemented using the concession form PPP, showed that such partnerships are successfully applied in transport (roads, railways, airports, ports, pipeline transport) and social infrastructure (health care, education, entertainment, tourism), Housing and communal services(water supply, electricity supply, water purification, gas supply, etc.), in other areas (prisons, defense, military facilities). Transport infrastructure is the leader, followed closely by social infrastructure (Fig. 1).

But if you analyze the use PPP-projects by country, considering them in accordance with the UN classification, then depending on the socio-economic development of the country, the picture will change. In Fig. 2 shows the usage diagram PPP-projects in the G7 countries (USA, UK, Germany, Italy, Canada, France, Japan) by industry (615 out of 915 analyzed PPP-projects). If we compare Fig. 1 and 2, we will see that compared to the overall picture in the G7 countries, transport infrastructure projects are far from being in first place. In the G7 countries, healthcare is in 1st place (184 out of 615 projects), education is in 2nd place (138 projects), and roads are in 3rd place (92 projects) (Table 1).

Such a distribution of industries is not surprising, especially if we take into account the peculiarities of the socio-economic development of this group of countries. A more detailed study of foreign experience showed that each of the G7 countries has its own highest priority industry for the use of PPP. Thus, in the USA, such an industry is roads (32 out of 36 projects), in the UK - healthcare (123 out of 352 projects) and education (113 out of 352 projects), in Germany - education (24 out of 56 projects), in Italy, Canada and France - healthcare.

Thus, we can draw the following conclusion: in those countries that are characterized by the presence of a market economy, a high level of labor productivity and the level of GDP per capita consumption, where the state guarantees a high level of social protection, where the average life expectancy is high and there is a high quality of medical care and education, PPP used more often in the healthcare and education sectors, which is dictated by government policy.

Let's look at other developed countries (Fig. 3, Table 2), which, according to the UN classification, we include:

• economically highly developed countries (Austria, Belgium, Denmark);
• countries of settler capitalism (Australia, Israel);
• countries with an average level of capitalist development (Ireland, Finland, Spain, Portugal, Greece;
• countries classified by the UN as developed (South Korea, Singapore). These countries are characterized by rapid rates of economic development and over the past 15-20 years have turned into large industrial, financial, scientific and technical centers.

As can be seen in Fig. 3, in 1st place in terms of number of uses PPP-projects is the industry related to the construction and reconstruction of highways (93 projects), followed by a very significant gap in healthcare (29 projects), education (23 projects) and accommodation facilities (22 projects).

If we turn again to Fig. 2 and compare the results of the analysis of two groups of countries, we will see that in the G7 countries health care is in 1st place, education is in 2nd place, and only then are roads. Therefore, we can formulate the following statement: there is a correlation between the level of development of a country and the industry that is selected to attract investment into it through PPP. Due to the high level of socio-economic development of the G7 countries and the countries we classify as “other developed countries”, the priority of the healthcare and education sectors is also determined by the policies of these states and their socio-economic development.

If we look closely at Fig. 2 and 3, we will see that the leading industries in both cases are healthcare, education, and roads, but depending on the group of countries, their places in the top three are distributed differently. If the above statement is true, then in developing countries and countries with economies in transition, these sectors (with the exception of roads) will not be a priority. Considering the lower level of economic development in these countries, the 1st place in priority for attracting investment through PPP transport infrastructure must be developed, namely: the construction and reconstruction of roads, ports, railways, etc. To confirm or refute this assumption, we will consider countries with economies in transition (37 out of 915 projects). In accordance with the UN classification, we classified countries with economies in transition as:

• countries of Central and Eastern Europe (Bulgaria, Czech Republic, Hungary, Croatia, Poland, Romania);
• Baltic countries (Latvia);
• CIS countries (Ukraine).

As can be seen in Fig. 4 and table. 3, the “healthcare” and “education” industries are no longer in first place in terms of application PPP- roads, construction of bridges and tunnels, light ground metro, and airports are in the lead. This picture is quite predictable and realistic. In countries with transition economies, attention is paid to these sectors in the first place, and funds are invested in them.

Now let’s look at developing countries, according to the UN classification (22 out of 915 projects):

• key countries (India, Brazil). They have great human and natural potential and together produce as much industrial output as all other developing countries;
• developing countries with a relatively high level of development and per capita GDP consumption (Chile);
• newly industrialized countries (have had high growth rates in the last 20-30 years):
  a) countries of the first wave (1970-1980s) (Hong Kong);
  b) newly industrialized countries (Mexico);
• oil-exporting developing countries (Saudi Arabia, United Arab Emirates).

As in the previous group of countries, developing countries are in 1st place in terms of number PPP-projects are highways, in 2nd place are airports, prisons and water treatment plants (Fig. 5, Table 4). This distribution primarily reflects the interest of countries in the development of these industries (individual for each type of country, as the study showed), since PPP allows you to attract private sector investment, reduce public sector costs, and distribute risks between partners in project implementation.

Thus, based on the analysis, the following conclusions can be drawn:
1. There is a correlation between the level of socio-economic development of the country and the priority sectors for application in them PPP-projects. Thus, in each of the subgroups it is possible to identify the leading industries in terms of use PPP-projects. For example, in the G7 countries more attention is paid to the social sphere (health care, education), and in developing countries - to transport infrastructure (Fig. 6, Table 5).

2. In any country of each subgroup, the government selects the highest priority industry for implementation PPP-projects.

3. Based on the research, we can try to make recommendations to determine the leading industries for application PPP-projects in Russia.

Application of foreign experience in the implementation of PPP projects in the infrastructure sectors of St. Petersburg

Considering the Russian Federation as a country importing methods and principles, as well as organizational features PPP-projects, we will try to apply foreign experience using the example of the northern capital, which is currently the most thoroughly prepared for the implementation and implementation of projects based on the principle of partnership between the state and the private sector.

On December 20, 2006, the Legislative Assembly of St. Petersburg adopted the Law “On the participation of St. Petersburg in public-private partnerships”, the goals of which were1:

1) implementation of socially significant projects in St. Petersburg;

2) attracting private investment into the economy of St. Petersburg;

3) ensuring the efficient use of property owned by St. Petersburg;

4) improving the quality of goods, works, and services provided to consumers.

The Law of St. Petersburg on participation in public-private partnerships establishes the procedure and conditions for the transfer of state property of St. Petersburg or the rights to carry out certain types of activities that are the prerogative of St. Petersburg to a private investor. He declares to the investor which projects and on what conditions St. Petersburg is ready to enter into relations PPP. There are no such laws in any subject of the Russian Federation yet.

The Law of St. Petersburg introduces the concept PPP as mutually beneficial cooperation of St. Petersburg with a Russian or foreign legal entity or individual, in the implementation of socially significant projects, which will be carried out through the conclusion and execution of agreements, including concession agreements.

As part of participation in PPP St. Petersburg may provide the investor with land plots, other real or movable property owned by St. Petersburg, or exclusive rights belonging to St. Petersburg.

According to the law, the city is ready to participate in PPP in the following sectors: transport infrastructure; public utility systems, including utilities and facilities for processing and disposal of household waste; power supply facilities; communications and telecommunications facilities; healthcare facilities; objects of education, culture and social services; objects of tourism, recreation and sports.

Currently, a number of projects are being implemented in St. Petersburg to develop the transport infrastructure of the city and region. The most significant and large-scale among them are the Western High-Speed ​​Diameter (WHSD), the Marine Passenger Terminal (MPT), the Overhead Express and the Orlovsky Tunnel.

The total capital expenditures (Capital Expenditure, CAPEX) of projects implemented in St. Petersburg will amount to about 165.19 billion rubles, of which the use of investment funds is estimated at 55%. For comparison: the city budget of St. Petersburg for 2006 was approved at the level of 180 billion rubles. It is obvious that without pooling its own funds and funds from private investors, the city administration would not be able to begin implementing projects of such a scale. Maximum use of the potential of the private sector will ensure the level of investment necessary for the development of St. Petersburg and will contribute to the growth of its economy.

Among other industries that currently use public-private partnerships, we can only mention Housing and communal services.

In relation to the Russian economy in general and the economy of St. Petersburg in particular, public private partnership should become one of the strategic directions for the development and modernization of modern infrastructure facilities. To identify the highest priority industries for application PPP-projects of the city of St. Petersburg, an analysis of the policies of the city Administration, priority national programs and target programs was made. Taking into account the experience of foreign countries, and in particular the experience of the G7 countries, as well as taking into account the direction of the policy of St. Petersburg and its socio-economic development, for application PPP-projects can be recommended in the following industries:

1. Healthcare. The main goal of the state healthcare system in St. Petersburg is to preserve and improve people's health, reduce direct and indirect losses to society by reducing morbidity and mortality, intensify disease prevention activities, and combat socially significant diseases.

The policy in the field of health care is carried out in accordance with the main directions of health care development, defined in the Concept of modernization of the health care system of St. Petersburg for 2004-2010. Modernization of the healthcare system is carried out in order to improve the efficiency of its functioning and is aimed at ensuring the quality and availability of treatment and preventive care. Priority in health care development is given to primary health care, maternal and child health services and emergency medical care.

In connection with this direction of the state healthcare system in St. Petersburg, there is a need for the construction, reconstruction, and modernization of hospitals, clinics and other medical complexes. The development of this area requires large financial investments, and therefore it seems most optimal to attract the private sector to implement the healthcare program on the basis of partnership with the state. The experience of foreign countries has shown that such projects are effective and viable, and the city’s policy favors development PPP in this industry.

2. Education. At the moment, the development of the education system in 2006-2008. in St. Petersburg largely depends on resource support, the most important component of which is budget financing. Funds are needed to preserve and develop various types of educational institutions, to meet the growing needs of the population for a variety of educational services, and to develop the abilities of children.

It is planned to allocate 346.0 million rubles from the budget of St. Petersburg for the development of the material and technical base of educational institutions in 2007, and 415.2 million rubles in 2008.2

We believe that funding education from the budget alone is not capable of covering all the city’s needs in this sector. PPP-projects in education can be used for the construction and reconstruction of educational institutions, modernization of schools and universities. Attracting private capital will reduce the burden on the city budget several times, increase the viability of projects, provide new jobs, etc.

3. Transport infrastructure. St. Petersburg is the largest transport hub in Russia, through which international cargo and passenger flows pass. The transport complex includes all types of transportation: sea, river, rail, road, air and pipeline.

The main documents defining the development strategy of the St. Petersburg transport hub are the “General Scheme for the Development of the St. Petersburg Port Hub (Big Port of St. Petersburg”), “Program for the Improvement and Development of Access Roads to the Big Port of St. Petersburg”, “Urban Planning Concept development of the Pulkovo airport zone" and "Concept for improving and developing the traffic management system in St. Petersburg". Much attention is paid to the development of the maritime component of the St. Petersburg transport hub. In order to develop the tourism business, preparatory work is currently underway to implement a project to create a Marine ferry and passenger complex on the newly formed (alluvial) territory on the western shore of Vasilyevsky Island. The implementation of this project will create conditions for receiving promising large-capacity cruise ships using the existing urban infrastructure. The operation of the port complex of St. Petersburg depends on the functioning of railway transport. The activities of the Big Port of St. Petersburg are ensured by 6 port railway stations. At the largest stations "Avtovo" and "Novy Port" there are logistics centers that provide operational information interaction between the railway and the port complex, which allows you to plan the work of both the railway and the port in advance. In terms of volume of railway cargo transportation, St. Petersburg ranks second after the Moscow Railway node. The St. Petersburg railway junction connects Russia with Finland and Estonia. 10 railway lines converge there.

The basis of the railway transport hub is 5 railway stations and the largest marshalling yard in the North-West region. The railway has a developed production base to ensure a full cycle of primary and auxiliary activities.

The high need for developed transport infrastructure has already ensured the implementation PPP-projects in this industry in St. Petersburg - Western High-Speed ​​Diameter, Marine Passenger Terminal, Orlovsky Tunnel, Overhead Express - these are the first transport infrastructure projects implemented through partnerships between the state and business. Except PPP-projects in the road sector, based on foreign experience and the legislative prerequisites of St. Petersburg, we believe that PPP It will be effective both in railway transport and in the construction and reconstruction of airports, bridges and tunnels.

4. Tourist industry. The activities of the Government of St. Petersburg are aimed at transforming tourism into one of the highly profitable sectors of the economy, providing a significant contribution to the socio-economic development of the city by increasing the revenue side of the budget of St. Petersburg and local budgets (“in 2010, tourism revenues to the city budget can amount to 6-7 billion rubles, which is 2.5 times more than the current figure. And the total income of all participants in this area will reach 75-80 billion rubles (currently it ranges from 20 to 25 billion)"3), an influx of investment, an increase the number of jobs by 75%4, conservation and rational use of cultural, historical and natural heritage.

The modern tourism industry is one of the most highly profitable and fastest growing industries in the global economy. According to forecasts of the World Tourism Organization, by 2010 the total number of tourists will exceed 1 billion people per year, and the income received from each tourist will increase by 40% and amount to $1,252. To ensure an effective economic process for receiving tourists in St. Petersburg, it is necessary to create infrastructure that meets modern international standards. Solving this problem is possible by attracting Russian and foreign investments for the construction and reconstruction of tourism infrastructure.

PPP can be used in sectors of the tourism industry: construction/reconstruction of hotel industry facilities, increasing the level of service at all tourism infrastructure enterprises, development and development of tourist and recreational SEZs, equipment and development of beaches, construction/reconstruction of holiday resorts, hospitals, health resorts, etc.

The main threats to the hospitality industry are lack of funding. This problem, even despite the measures taken today by the Government of the Russian Federation and the Administration of St. Petersburg, will be quite difficult to solve without an injection of private capital. Business cannot develop without adequate government support. Therefore, to achieve positive results and realize the city’s existing capabilities, it is necessary to create PPP in the tourism industry and primarily in the hotel business.