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### Viewing cable 05BRASILIA1118, BRAZIL MOVING FORWARD WITH PUBLIC-PRIVATE

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05BRASILIA1118 | 2005-04-26 19:40 | 2011-07-11 00:00 | UNCLASSIFIED | Embassy Brasilia

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 03 BRASILIA 001118

    SIPDIS

    NSC FOR BREIER, RENIGAR
    TREASURY FOR OASIA - DAS LEE AND FPARODI
    STATE PASS TO FED BOARD OF GOVERNORS FOR ROBITAILLE
    USDOC FOR 4332/ITA/MAC/WH/OLAC/JANDERSEN/ADRISCOLL/MWAR D
    USDOC FOR 3134/ITA/USCS/OIO/WH/RD/DDEVITO/DANDERSON/EOL SON

    E.O. 12958: N/A
    TAGS: EINV ECON PGOV EFIN BR
    SUBJECT:  BRAZIL MOVING FORWARD WITH PUBLIC-PRIVATE
    PARTNERSHIPS

    REF: A) BRASILIA 521     B) SAO PAULO 262

    ¶1. (SBU) Summary:  The GoB is close to launching an inter-
    agency review of its first two Public-Private Partnership
    (PPP) proposals for major infrastructure investments,
    according to Ministry of Planning Chief Economic Advisor
    Antonio Alves and special PPP coordinator Mauricio Ribeiro.
    These projects would be reviewed by the Ministers of
    Planning and Budget (Paulo Bernardo), Finance (Antonio
    Palocci) and the President's Chief of Staff (Jose Dirceu),
    who together comprise the PPP Management Committee.  The GoB
    hopes PPPs will make more attractive otherwise marginally
    profitable investments in infrastructure through
    arrangements such as cost sharing to joint investments or
    operating subsidies.  Our interlocutors stated that a decree
    creating the guarantee fund, which would provide PPP
    investors a guarantee in case the GoB fails to meet its
    contractual obligations in a particular project, is close to
    being issued.  Many of the details of PPPs would still have
    to be negotiated in the individual project contract.  Even
    if all goes well, these first two projects would not go out
    for bids until, at the earliest, end-2006.  To help close
    the widening public infrastructure deficit, the GoB is
    seeking substantial involvement by foreign firms and
    investors in PPP projects.  In our view, however, the GoB
    likely has oversold PPPs as the solution for long-standing
    infrastructure bottlenecks and its past lack of public
    investment.  Many states and municipalities also plan to
    sponsor PPP projects based on state and local-level statutes
    that vary from the federal legislation and from each other.
    End Summary.

    ¶2. (U) The GoB has set up a PPP Management Committee (MC),
    consisting of the Ministers of Planning and Budget (a rough
    OMB-equivalent), Finance, and the President's Chief of
    Staff, Alves and Ribeiro told Econoffs in an April 18
    meeting.  The MC will act based on technical-level
    assessments from all three ministries.  Alves and Ribeiro
    anticipated that the GoB shortly would issue a decree
    creating the PPP guarantee fund, consisting primarily of
    stock in large state-owned companies, such as Petrobras,
    which have been partially privatized and whose stock trades
    freely on the Sao Paulo exchange.  The guarantee fund will
    serve as a security for investors if the GoB fails to meet
    its contractual obligations under a PPP.  Alves stated that
    the GoB does not plan to issue a decree with implementing
    regulations, but rather will tackle these issues in the
    individual project contracts.

    ¶3. (U) The GoB has created a multi-stage process to select
    and structure PPP projects, the first stage of which is a
    screening by the technicians working for the MC, according
    to Alves.  Those projects that receive clearance at the
    technical level would be forwarded to the three MC
    ministers.  If approved by the ministers, projects would
    then be farmed out to a consulting firm for formal study, in
    coordination with the relevant regulatory agency or sectoral
    ministry (e.g. transportation).  The former are involved
    because, in many areas, the regulatory agencies retain the
    formal authority to grant concessions (PPPs formally are
    considered a modified form of concession contract).
    Finally, the consultant's study would be presented to the MC
    for its final approval, a stage that Alves envisioned as a
    formality in most cases, since most kinks in projects would
    be worked out in the study phase.  After the MC's final
    approval, projects would be put out to bid.  Alves and
    Ribeiro were proud of the bidding procedures contemplated in
    the PPP law, saying that the GoB was working to reform its
    general procurement rules to incorporate some of the
    innovations in the PPP legislation.

    ¶4. (U) Alves anticipated that the technical level MC would
    meet in May to consider the first two proposed PPP projects.
    He thought it likely these would be forwarded to the MC for
    their approval relatively quickly, since the projects in
    question are long-standing proposals that the technicians
    know well.  But, given the need to hire consultants through
    a formal bid process and then allocate four to five months
    for them to study the projects, obtain MC approval and then
    prepare formal bid documents, the minimum time frame for the
    two projects to make it to bid would be eight months.  Alves
    noted that the projects in question, which he characterized
    as transport-related, would speed through the review process
    as they already had advanced environmental impact studies.
    He nevertheless characterized the eight-month-timeframe as
    "optimistic."

    ¶5. (U) Alves expected that the Ministries of Planning and
    Finance would play a more circumscribed role in future
    projects as the sectoral ministries and regulatory agencies
    improved their capacity to prepare project proposals.  Once
    the whole review apparatus was up and running, Alves thought
    that the system would be able to process about two projects
    every three to four months.  The bid specifications
    contained in the first two projects, he explained, would
    likely serve as a model for those that followed.

    ¶6. (U) The Planning Ministry, Ribeiro noted, would like to
    complete a study of obstacles that foreign construction
    firms face in doing business in Brazil.  They would like to
    reduce at least some of these barriers in order to increase
    competition in bidding on these large infrastructure
    projects, which only a handful of Brazilian firms had the
    capacity to take on.  This would help improve the terms of
    the PPP projects for the GoB and also address a perceived
    lack of capacity among the large Brazilian firms to take
    very many of these projects onto their balance sheets.
    Alves and Ribeiro emphasized that there were no legal
    restrictions on foreign firms bidding on PPP projects, and
    encouraged U.S. companies to seriously consider this market.

    ¶7. (U) Finally, Alves observed that the latest Budget
    Directives Law (LDO, in its Portuguese acronym), which lays
    out the GoB's three-year spending plan, currently in
    Congress, already envisions PPP counterpart spending.  This
    was a prerequisite for inserting the specific PPP
    counterpart line items in the annual budget law, which would
    be approved at end-year.

    ¶8. (SBU) Several individual states are pursuing their own
    state-level PPP projects.  Sao Paulo, Goias, Minas Gerais,
    Bahia, Santa Catarina and Espirito Santo, among others, have
    passed laws governing state-level PPPs.   Sao Paulo may well
    initiate an export-import corridor PPP project before the
    national level PPP project kick-off (ref B).  Sao Paulo
    Econoff met on March 22 with attorneys Ricardo Sanches and
    Troy Petit of the Sao Paulo-based law firm Felsberg and
    Associates to discuss PPPs.  They expect to see the export-
    import corridor kick-off this year.  Sao Paulo state also
    has created a guarantee fund, CPP, in the form of a holding
    company dedicated to PPP projects.  CPP also will play a
    role in assessing project viability.  Sanches noted that
    federal, state and municipal governments will all sponsor
    PPP projects, with a mix of different regulatory approaches.
    He cautioned that many other states were less prepared than
    Sao Paulo and Minas Gerais to prepare and launch PPP
    projects.  The quality of state and municipal level
    guarantees also might vary widely.  Sanches emphasized the
    importance of the GoB and the states taking a prudent
    approach to the first PPP projects, as their success or
    failure would likely prove a bell-weather for future PPPs.

    ¶9. (U) PPPs may not be as necessary for some states as
    others.  In a meeting with Rio Econoff, the State Secretary
    for Economic Development of Espirito Santo (ES) said that
    despite the fact that ES has approved a PPP law, it is
    counting on its hospitable and investment friendly business
    environment and fiscal incentives to attract much needed
    investment and that PPPs are not its priority right now.
    ES's belt tightening also means that it can invest in those
    projects that are truly public in nature, i.e., low return
    on investment.

    ¶10. (SBU) Comment.  The GoB long has been talking up PPPs as
    its answer to falling public infrastructure investment and
    the ongoing problem of infrastructure bottlenecks, which are
    holding back productivity growth.  In moments of candor,
    however, members of the GoB economic team admit that PPPs
    likely have been oversold as the answer to this set of
    problems.  And, while the jury obviously is still out on
    their ultimate effectiveness, PPPs look to be more of a band-
    aid solution to investment rather than the sort of broader
    measure -- such as overhaul of the Byzantine tax system or
    efforts to reduce regulatory uncertainty -- necessary to
    attract the quantity and quality of investment, both
    domestic and foreign, that Brazil needs.

    ¶11. (U) This cable was reflects input from Consulates Sao
    Paulo and Rio de Janeiro.

    DANILOVICH

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