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INTRODUCTION
Public-private partnership (PPP) are means by which the public and private sectors can
work together as they provide a contractual and formalized framework needed for easier
cooperation between all parties (United Nations, 2007). It is said to be designed by and exists
working in coalition in order to achieve mutually beneficial results. PPP provides a forum
wherein the parties involved can develop their strategies to remove barriers in efficient trading.
Through the involvement of private parties even though there are competencies in trade and
transport and different interests for their businesses, public-private partnerships can help in
developing the most efficient and properly regulated supply chains (The United Nations Trade
Facilitation Network, 2005). It also enables the participants of the certain system to transfer the
various risks inherent in a project to those who are best equipped for management. PPPs have
been increasingly popular in the third way government policy and as a means of infrastructure
provision, with better efficiency promised from the private funding of public infrastructure
through the transfer of risks to private parties (Graeme, 2004). It influences the investments
made in the state in the transport and communications infrastructure base of gateways and
corridors. It is also being used for enabling private provision of facilities wherein it involves
ownership, regulation and structure which creates impact on the performance of firms or
industries.
The North Luzon Expressway (NLEX), one of the main road arteries in the Philippines
sets a new standard for convenience and safety for motorists and travelers (Manila North
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Tollways Corporation, 2009) and probably those that ship goods bounded for central and
northern Luzon and vice-versa. The problem with the NLEX is that prior to its rehabilitation and
expansion, the original road bounded in the north was constructed over 30 years ago has been
widely criticized for being too narrow and the cause of many avoidable accidents and deaths
(Net Resources International, 2005). It is for this reason that the Manila North Tollways
Corporation (MNTC), together with Leighton Asia and the Philippine National Construction
Corporation (PNCC) undertook a joint project for the rehabilitation and expansion of the NLEX
The rehabilitation and expansion of the NLEX were done and are being continued
through foreign assistance, foreign aid. Considering that the Philippine government alone could
not undertake such project, acquiring assistance through loans and employing partnerships with
private entities, in this case MNTC and Leighton Asia, was resorted to. Foreign aid is the
for the benefit of the recipient country or its population. Aid can be economic, military, or
emergency humanitarian (Williams, 2010). It is the form of assistance from international funding
organizations, or other countries for that matter, to countries which are in need for the creation of
their respective projects. In the case of MNTC, they employed assistance from the Asian
Development Bank (ADB) and other foreign funding organizations in order for the expansion
and rehabilitation of the NLEX to take place in the form of loans. Apart from ADB, funding the
expansion and rehabilitation of the Philippine North Luzon Expressway (PNLEX), Leighton
Asia was the company to whom MNTC awarded the contract in order to undertake the said
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The present study would concern itself with the process the PNLEX Project undertook in
its rehabilitation and expansion, the dynamics between the relationships of the parties involved
(i.e. ADB, Leighton Holdings, MNTC and PNCC) in the management and decision-making
process of the project, the present condition of the said project and the issues concerning the
partnership of the parties as regards to the PNLEX Rehabilitation and Expansion. In line with
this, the roles and interests of each party in the partnership would be analyzed and assessed.
Furthermore, the present results of the project would also be considered as to the manner it
MNTC, is a project planned from 2000-February 2005 that comprises the rehabilitation,
expansion and operation of 83.7 km of the existing NLEX, including the construction and
rehabilitation of 14 interchanges, 24 bridges and 31 overpasses from Manila via Balintawak exit,
to Clark Special Economic Zone via Sta. Ines exit, and the operation of a 8km expressway in
Subic Special Economic Zone, completed in 1996 (ADB, 2008). This is a project financed by
development finance institution whose mission is to help its developing member countries reduce
poverty and improve the quality of life of their people (ADB, 2010). It is also said that the
project provides the capacity required to meet current and expected traffic growth (ADB, 2008).
This project would not have been successful if it werent the help of the foreign aid. This
aid was given to us in order to help us develop the means of transportation for those living in
North Luzon who wanted to travel to Metro Manila and vice versa. But, when we talk about
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foreign aid, we talk about the loaning of money from a foreign agency and having additional
debt from our previous ones because of the other projects they have funded. Aside from paying
back the amount of money loaned, what the foreign agency has given to the Philippines can be
rewarded through using the money appropriately and presenting reports on how it has improved
the society.
The MNTC employed the help of funding agencies namely, the ADB ($70m), Export
Export Credit France (COFACE) ($30m), Multilateral Investment Guarantee Agency (MIGA)
($52.5m), the World Bank via the International Finance Corporation (IFC), the Swedish Export
Credit Agency SEK and commercial banks Calyon, West LB, DZ Bank, Mizuho, ABB, and
NordBank (Net Resources International, 2005). These are the foreign agencies that are involved
in funding the upgrading and widening of the NLEX considering the Philippine government not
These banks rendered aid to the project of the MNTC in the form of loans. It is notable
that the ADB assisted in the project by giving loans worth USD 70million, the largest among the
financiers of the project. Within this amount, USD 45 million is a part of a complementary
financing scheme and USD 25 million is a private sector loan, all of which are fully disbursed
(ADB, 2008). The ADB, being a reputable international institution as regards giving aids to
developing countries, is geared towards economic growth. In the process, it finances projects of
the private sector, in this case the MNTC, in its goal to improve the road transport services.
As the demand for infrastructure grows, governments are increasingly looking to public
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Government recognizes the essential role of the private sector as the main engine for national
growth and development. In line with this, relevant incentives will be provided to promote
private resources for the purpose of financing the construction, operation and maintenance of
infrastructure and development projects normally undertaken by the Government. Along with the
MNTC, they have improved the PNLEX through negotiating with its public and private sectors
in the Philippines and request for help in its process of rehabilitation and expansion that shall
help lessen the troubles of the people who travel in this road. Such regulatory risk insurance
could take the form of make-up payments from the government to PPP investors, other
guaranteed payments, and adjustments to contract terms. Part of the contract is the negotiation on
the protection and mechanisms in certain aspects based on its preparatory process,
responsiveness to the sectors needs, and high implementation. MNTC holds the concession
rights to toll the NLEX in the Philippines. It is known to be an organization that has articulated
its mission as providing high quality public service through improved tollway infrastructure and
systems. Established in 1995 as a result of a joint venture arrangement between a private firm
While it may be true that it was the MNTC who participated in acquiring loans to
upgrade the PNLEX, it is still important to consider the importance of the office that bears the
contract in undertaking the said project, Leighton Asia. Furthermore, the undertaking of such
project would not be possible if not for the participation of government institutions thus, the
participation of the Philippine National Construction Company as regards the management of the
funding, rehabilitating and expanding PNLEX would also be taken into account.
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Apart from foreign aid, evident in the said undertaking of the project is the presence of
partnerships between the ADB, Leighton Asia to whom the contract on the said project was
given to, MNTC and the government office of PNCC. It is through the partnerships of these
companies that the present rehabilitation and expansion of the PNLEX is actually taking place.
From this partnership, each of the parties involved are assumed to receive benefits from
participating in such partnerships and the process within which they attain these benefits and the
actual process of decision-making and management of such project. The PNLEX is displaying
improvements with regard to its form as reflected by the recent developments on the toll plazas,
Theoretical Framework
There will be two types of theory that will be used as a guideline in conducting such
complex relationships. The first type would be a general theory and the other one would be a
specific theory. Under the general theory, the Reciprocity Norm will be used and as regards to
the specific theory, there will be two theories under it, those are the partnership theory and the
Reciprocity Norm
As what have been mentioned, the general theory would be the Reciprocity Norm, and as
a theory, it simply states that there is a common social norm, in which if a certain individual or
entity gives something or help in any means to another individual or entity, the recipient of that
help is obliged to return the favor. Its description as a norm includes the idea in which the initial
giver can actually ask something in return (instead of waiting for a voluntary reciprocal act). In
addition to that, the initial giver, according to the norm can also ask for more than what was
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given. This theory also touches on the concept of liking, wherein it assumes that an individual
likes another individual who likes him or her, and dislikes another individual who dislikes him or
Investment Model
According to this model or theory, the relationships that a particular individual or group
is into depends mostly on how each party is satisfied, in which this satisfaction is influenced by:
The rewards and costs and what the parties see as a fair balance; comparison with other potential
alternative partnership; the degree of effort or amount that the individual or group has invested in
Furthermore, this model or theory proposes that investment can be financial, temporal, or
emotional. It also contains the idea of the so-called sunk cost effect, in which it suggests that a
particular individual or group of people stays in a relationship for the reason that they have
already invested a lot in it (Investment Model, 2002). Thus, it follows that in making a particular
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Party A Party B
Partnership theory implies that partnerships are basically created for purposive goals to
build relationships and get things done, which can be tangible or intangible output. In such
partnership (Partnership Theory, 2005). Thus, each participant in a particular partnership should
be ready and resilient enough to face such challenges that might emerge in their relationship.
The following are the four key stages in the life of a partnership: Initiating is the first
stage in the life of a partnership. This stage recognizes who started the partnerships, why the
partnerships have been started, what kind of partnership would this be -is it a long-term or a
short-term arrangement. The second stage is the so-called Starting stage: This stage includes
reviewing on what is happening in the area, and looking at the ideas and projects of the
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partnerships; knowing the partners that are involved, which may include their styles for working
and preferred means of communicating; there is the existence to share their understanding of
problems, projects and activities to meeting their goals; setting up a temporary arrangement for
making decisions, staffing, administration, project management; and creation of a business plan
that includes training and support along with project development, funding, staffing, constitution
and partnership agreement (Partnership Theory, 2005). The third stage is the Doing stage: this is
the stage where actual developing and starting of projects occur; concentration on the partners
and the people that are involved along with the projects, training, support and socializing; and
the involvement of outside potential entities into the primary partnerships, within which these
entities have an investment in projects or programs to the partnership. The last stage of life cycle
of a partnership is Following Through or finishing: This is the stage where parties reflect on what
is working and what is not working so that they could improve or remedy some aspects; and the
last part of which has something to do with the question, is the partnership is still essential, , is
there still a need for it, does it give benefits or detriments, Is there any progress that happening
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Conceptual Framework
The study is all about the dynamics of the partnership between the Asian Development
Bank, Manila North Tollways Corporation, Leighton Holdings and Philippine National
and expansion of the existing Philippine North Luzon Expressway (PNLEX). Hence, this study
which would assess and analyze whether the entire project or even a component of it works for
the benefit of the many, serves the interest of those who avail the services of PNLEX and,
whether the partnerships as regards funding and managing the project produces developments in
line with its present condition. This could be done by assessing each important element in the
study i.e. the dynamics of the Philippine government in such partnerships, the private-public
relationships which includes the major corporations, MNTC, PNCC and Leighton Holdings and
a financial institution which is the Asian Development Bank as well as the whole process it
underwent and the agencies who took part of its development and the results that the project
Figure 1.4 shows that the center of the conceptual framework is the main project called
Philippine North Luzon Expressway Expansion and Rehabilitation, in which the whole
partnership is mainly working on. Other important entities MNTC, Leighton Holdings and
PNCC will also be touched by the theories present in here. The general theory, which is the
Reciprocity norm, is the invisible pattern that guides the whole processes of this partnership. As
regards to the specific theory, namely Partnership theory and Investment model, these theories
would be the ones responsible for identifying the significant and various processes that every
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It is in this investment model where one can find an explanation as to why these entities
are still in the relationship or partnership. The simple reason, which is supported by this model,
is that the entities (MNTC, Leighton Holdings, PNCC and ADB) have already invested heavily
in the PNLEX project. Furthermore, one can still find the relevance of this model because of the
three factors that it takes into consideration: Alternative simply suggests that in pursuing the
main project -which is the center of the framework- are there still other entities that the
Philippine Government or MNTC could have partnered instead of the current ones; the second
factor is the effort, in which this touches on the degree of investment that the parties involved in
the relationship or partnership have already spent in. the third factor or element, which is
satisfaction simply deals on the notion that, are the entities involved in the partnership satisfied
with each others performance. Taking all these into consideration, one can derive why the
entities or parties involved choose and are still in the partnership to pursue what they had already
begun.
In the Life Cycle of a Partnership, one can see the flow of relationship, or flow of the
processes in pursuing the project PNLEX and Expansion and Rehabilitation Project. As regards
to the initiating stage, which concerns as to who started the project, basically it started when the
Philippine Government recognized the importance of the private sectors in their role as the main
engine for national development, especially that of the MNTC, and also made the institution
responsible for collecting tolls in order to regain capital and settle the loans to the ADB; hence,
their relationship was set on the first stage; and that this kind of partnership would be a long term
kind of Public-Private partnership. As to the second stage, the starting stage, this includes
reviewing on what is happening and finalizing as to who are involved in the partnership. The
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main entity concerned here is the Asian Development Bank, the primary agency funding the
PNLEX Rehabilitation and Expansion. ADB partnered with the Philippine National Construction
Corporation in order to undertake the said project in the Philippines. PNCC, is chiefly concern
on collecting revenue in order to enhance the delivery of services in the PNLEX route. The third
stage of this cycle, which is the doing stage refers to the actual developing and starting of the
project really occurs and the involvement of outside potential entities into the partnership comes
in, and in this where the private company contractor comes into the picture, the Leighton
Holdings. The last stage, which is the finishing stage is where the reflecting part comes in, that
the parties involve analyze which part is working or not, or which part is essential or not, does
the partnership progresses or not. This last stage is where the assessment part of the whole
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Asian
Development
Bank
Alternative Effort
Initiating Starting
Finishing Doing
Leighton
Holdings
Satisfaction
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Statement of the Problem
Main Problem:
Does the partnership between the ADB, MNTC, PNCC affect the management of the
Sub-problems:
1. What kind of partnership does ADB, MNTC, PNCC have on the PNLEX rehabilitation
and Expansion?
2. What kind of management is made in the funding and undertaking of the PNLEX
3. What factors in the partnership affect the management of the PNLEX Rehabilitation and
Expansion Project?
Thesis Statement:
The partnerships between the ADB, MNTC PNCC and Leighton Asia significantly affect
the management of the funding and undertaking of the PNLEX Rehabilitation and Expansion.
The present study is focused on the dynamics of the partnerships between the ADB,
MNTC, Leighton Holdings and PNCC and how it affects the management and decision-making
processes with regard to the funding of the PNLEX Rehabilitation and Expansion. Moreover, by
the end the research, the study would be beneficial to the following people.
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Beneficial to travelers passing through the NLEX
The very nature of NLEX, being one of the main road arteries in the Philippines shows
that those travelers availing the service of this road system is paying the government rent for the
use of this service through toll rates. By possessing knowledge as regards how the transactions
between parties handling the PNLEX Rehabilitation and Expansion are occurring, motorists
would understand the current trend on increasing toll rates. The loans given by international
funding institutions, such as the ADB, are the ones being used in financing the said project. With
the study, motorists would understand the whereabouts of the system and how the policy on toll
rates came to be. In addition, particular users of PNLEX i.e. bus operators, drivers and
passengers would also be benefit. The study can explain the contribution of the PNLEX to the
development to the road transport sector as a whole thus, making them understand the reason
they pay toll fees, as well as travel fares, that constantly increase.
This is for the reason that their partnership would be assessed as regards the management
of the PNLEX project. The present condition of the project and its development, including
possible future prospects on PNLEX would portray the dynamism in the partnership of these
parties. Thus, after the assessment of such dynamism, conclusion could be drawn as to whether
the partnerships between these parties are efficient to undertake and manage projects such as
those of the PNLEX and whether or not the funding of international institutions would actually
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Beneficial to policy makers
companies participating in the PNLEX project, the policy-making body could affect laws which
could serve the both the interests of the consumers of the road service, particularly the motorists,
and the former. Furthermore, effective policies as regards toll rates could be passed in order to
present a justified amount on the toll rates being paid by the motorists. The funding of PNLEX
comes in loans so in order for the government to pay these loans, it would require collection
The future researchers who would want to deal with the system of management and
decision-making process between government agencies and private enterprises would likewise
benefit. Seeing that the government resorts to partnerships with private companies and in this
study funded by international funding institutions i.e. ADB, future researchers could create an
expansion on the study of partnerships and funding via other foreignfunded projects and see
the relation of their partnerships as regards the undertaking and management of such projects.
The study is focused on the dynamics of the partnerships between the ADB, Leighton
Holdings, MNTC and the PNCC as regards the funding of the PNLEX Rehabilitation and
Expansion. The extent of the partnership between these parties would cover the decision-making,
the efficiency of the partnership, its impact on the PNLEX Rehabilitation and Expansion and, its
contribution to the development of the transportation and the road sector as a whole. In line with
this, the study would cover the role and participation of ADB as the biggest financier of the
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project. Furthermore, the study would cover the relationships between private entities,
particularly between Leighton Holdings and MNTC, with government agencies, PNCC. As such,
the study would cover the present condition and the developments of the PNLEX project as far
as the partnership and funding of these parties are concerned. The study would also cover the
benefits each party receives in participating in the management and decision-making process of
the PNLEX project. Furthermore, the study would likewise cover the contribution of each
partnering agency to the success of the project and the development of the transportation and
Given the coverage of the present study, the limitations are as follows. The study is
would not cover the co-financiers of the ADB as regards the PNLEX Rehabilitation and
Expansion is concerned. Other project sponsors namely the First Philippine Infrastructure
Development Corporation and Egis Projects would not be considered as part of the study.
Furthermore, the study is limited the partnerships between ADB, MNTC, Leighton Holdings and
PNCC only. Other actors that may seem to affect their decisions as regards the management of
the PNLEX project would not be included in the analysis. Thus, the assumption is all other
Definition of Terms
Upon the course of the research study the terms, dynamics, partnerships, ADB, MNTC,
Leighton Holdings, PNCC, funding and PNLEX Rehabilitation and Expansion would be defined
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Dynamics. This refers to the transactions, relationships and whereabouts of the
partnerships between ADB, MNTC, Leighton Holdings and PNCC. Dynamics would refer to the
Partnerships. This refers to the mutual agreement between the ADB, MNTC, PNCC and
Leighton Holdings with regards to the undertaking, management and decision-making as regards
the PNLEX Rehabilitation and Expansion project is concerned. This would also refer to the joint
efforts of each party in contributing to the development and success of the PNLEX project.
Asian Development Bank (ADB). This refers to the primary agency funding the PNLEX
Rehabilitation and Expansion. The ADB would be viewed as an international funding institution
that partnered with public and private offices namely, MNTC, Leighton Holdings and PNCC
Manila North Tollways Corporation (MNTC). This would refer to the private office
managing the toll rates in the PNLEX. It would also be referred to as the institution that acquired
the loans for funding the rehabilitation of the PNLEX. In such case, it would also be viewed as
the institution as is responsible for collecting tolls in order to regain capital and settle the loans to
the ADB.
Leighton Holdings Asia. This refers to the institution that possesses the contract for the
upgrading of the PNLEX. It refers to the institution to that started the first phase of the upgrading
of the said road. It could be used interchangeably with Leighton Holdings and Leighton Asia
office that partnered with MNTC, Leighton Holdings and ADB concerning the PNLEX
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Rehabilitation and Expansion. In the study, it would be understood as an institution that takes
part in the decision-making not only within the partnership but also within state premises.
Funding. This refers to the allocation of funds in order to undertake a specific project.
The ADB is designated for this function. It would finance the PNLEX Rehabilitation and
Expansion through loans which would be handled by all parties present in the existing
partnership.
refers to the existing project the partnership between ADB, MNTC, PNCC and Leighton
Holdings is intended too. In the study, being a foreign-funded project, it would be the
determining variable in assessing the dynamics of the partnership between these parties. The
assessment of the dynamics of the partnership would be reflected to present condition and
enhancing and improving the PNLEX. It refers to the addition of lanes, counter flows, exits, sky
ways, bridges and toll gates that is suppose to guarantee better services to be delivered by the
PNLEX i.e. faster and more convenient travel time for motorists.
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CHAPTER II
Public-Private Partnerships
contractual agreement between agencies of both the public and private sector. Through this
agreement, the skills and assets of each sector divides the function of delivering service for the
use of the general public. In addition, each party shares in the risks and rewards potential in the
delivery of the service and/or facility (NCPPP - How PPPs Work, 2011). PPPs are part of the
new government model, integrating the public sector with private sector management strategies.
They create greater flexibility within the public sector that allows for governments to better tailor
their service provision to the unique needs of their constituents (Goldsmith & Eggers, 2004).
With the control on current fiscal budgeting, the ability to provide services at the lowest cost and
its alternative means to become increasingly important (Goldbach, Goldman, et al., 2004).
more natural persons built by simple foundations, unlimited liabilities, and no minimum capital.
A partnership is formed when two or more natural persons join together in a joint company to
carry out business activities together. It is not possible for a juridical person to participate as
member of the company. The company is a legal entity and has company assets. All members of
the company are individually and jointly liability without limitation. These agreements are
created to handle and transform certain situations in the society where development activities
initially formulated and owned by both companies. These activities help to transform the state
because it unites both bodies in the partnership and it also affects its external environment by
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helping to implement their policies. External agencies can support these local processes of
creation and ownership by engaging in partnership. As part of a shift away from development
aid towards more reciprocal international cooperation, partnerships are guided by a sense of
The term partnership denotes a cooperative enterprise based on joint rights and
responsibilities. To succeed, such a relationship requires clearly stated objectives, specific roles
the cooperative arrangement (Kendrick, 1982). It may help achieve their business goals by
combining both labor and economic resources, however, it soon becomes independent from each
other and there is a possibility of a restraint of trade agreement among the partners if both
When we talk about public-private partnerships, there must also be a strong commitment
on the part of the government because it serves as the key to the success of a PPP. They can be
useful in assisting governments to develop community projects which by themselves may not be
financially viable. In the United States, their Congress has declared the Foreign Assistance Act
of 1961 which aims for the encouragement and sustained support of the people of developing
countries in their efforts to acquire the knowledge and resources essential to development and to
build the economic, political, and social institutions which will improve the quality of their lives
The use of PPPs has been implemented by almost all developing countries since 1990.
Differences across regions and sectors have nevertheless been significant and provide valuable
policy lessons from the PPP experience. And as observed during the 1990s, most of the toll road
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concessions involved expansion or rehabilitation of existing roads rather than the construction of
new networks (Thomsen, 2005). The basic system of PPP governance needs to encompass
behavioral rules, which could include appropriate sanctions and penalties within the contract.
Breach of rules could involve mediation but improved PPP governance may be better achieved
In this type of partnership, there is also the search for infrastructure finance which refers
to the economic finance used in supporting structure for various groups of the society that
positive effects on economic growth, and those that may be necessary for various economic
population group (European Investment Bank, 2008). As the need for investment in
infrastructure continues to grow, private sector financing for infrastructure projects has
developed around the world. Given that there are new types of investment vehicles and risk for
pension funds to manage such as exposure to leverage, legal and ownership issues,
environmental risks as well as regulatory and political challenges such caution may well be
justified. However, if governments are willing to help infrastructure developers receive the
needed amount of finance through potentially important sources of financing in order to continue
with the plans and programs, certain steps can be taken. Transport and energy, like other
infrastructure investments, are intermediate goods: the make possible other accounts that
increase productivity and enhance the welfare of poor people, and they contribute to economic
growth that may expand economic opportunities available to poor and provide additional
resources for poverty reduction (Asian Development Bank, 2005). Previous transport projects of
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ADB struggled to show a direct link between project activities and poverty reduction. Most are
The government of the Philippines has embarked on an ambitious fiscal reform program
(Nathan Associates Inc., 2007). Like in other countries, it has distributed its yearly budget mostly
on infrastructure because it is what entertains the society and the business partners of a given
society, the economic professionals from foreign countries. Professionals of this job is given the
role of providing support for infrastructure projects with appropriate interventions including
financing projects through sovereign and non-sovereign modalities, structuring and financing of
frameworks for improving the enabling environment for project structuring and financing (Asian
In an interview, it has been said that there are many states that do not have sufficient
funds to maintain their roads; much less add needed capacity (Florian, 2008). One of the most
important business sectors that a society have is the business infrastructure which includes
as well as the cross-cutting construction and environmental business when it is defined narrowly,
if focuses on the construction industry, which is a vital and important sector of the economy
(Grigg, p. 1, 2010). This just implies that infrastructure is indeed a vital point to be considered in
planning to have a sustainable future of the people and its society. The growing reliance on
external assistance to address domestic concerns is an emerging fiscal reality in many developing
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Foreign Assistance in Partnership Projects
Foreign Aid, also known as Official Development Assistance (ODA); the transfer abroad
of public resources on concessional terms (with at least a 25 percent grant element), a significant
in developing countries. It does not include military expenditures or military aid, trade or
investment financing, public funding for cultural exchanges, expenditures on foreign intelligence
(Lancaster, 2000). Foreign aid is, by denition, such an instance: it provides goods or nance at
below market prices to governments or population groups (Tanzi, 1998). Aid disbursements are
typically handed free to local authorities that then distribute them, with considerable discretion,
among their fellow citizens (Treisman, 2000). For any of the four reasons slowing growth and
investment, diverting tax receipts, biasing the provision of public goods or fostering ination
corrupt countries may become poor performers and nd themselves relying increasingly on
Historically most aid has been given as bilateral assistance directly from one country to
another. Donors also provide aid indirectly as multilateral assistance, which pools resources
together from many donors (Radelet, 2006). Now, It has been widely viewed from the
perspective of the donor countries over the recipients since aids are released upon the discretion
of the donors (Riddell, 2007). Aid can be considered effective to the extent that it assists
countries to develop and to overcome poverty. Foreign aid is postulated as one possible source
of capital that will fuel faster growth among the low-income economies and enable high-in
(Barrios, 2007). However, aid does not aim to transfer as much money as politically feasible
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from the wealthy to the poor nations nor foster society-wide transformation from poverty to
wealth. And so the transferring of money is then updated by the Official Development
Assistance (ODA) which records the amount of international aid received by a country. If aid is
not channeled to productive uses or to poverty reduction, it may be going somewhere else. One
possibility is that aid is channeled to uses that promote corruption (Alesina & Dollar, 2002).
Government officials themselves admit that peace and development efforts in Mindanao
cannot take place without the generosity of overseas development donors. But still, aid is good
on the assumption that everything it provides makes a difference to the recipient country
(Riddell, 2007). These aids could come as bilateral aids, wherein the government of the donor
country is directly involved in the release of the aid, or as multilateral aids, wherein the aids are
2007).
It may be possible to conclude that without foreign aid, the country would not be capable
enough to withstand the rise and fall that will interfere with their plans, and that there is only a
half-percentage probability that they would not fulfill a sustainable development which meets the
needs of the present without compromising the ability of future generations to meet their own
needs. It contains within it two key concepts: (1) The concept of needs, in particular the essential
needs of the world's poor, to which overriding priority should be given; and (2) The idea
of limitations imposed by the state of technology and social organization on the environment's
ability to meet present and future needs (Sustainable Development Timeline, 2007).
The sustainable means of transportation is a must thing to have or do, since its real
visions are to change the people and the way how they live, the second one is to change
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technology and the last one is on changing prices. These things are the rationale of sustainable
transport which is equated to its solution to the socio-political setting of the Philippines, and the
problem is mainly on how to attain this because of the impediments such as, it would require first
a large amount of money and might take a lot of years to achieve, but of course, considering
because to do nothing will result to an even greater problems in the long run (Black, 2010).
Moreover, this could not be seen as an impediment as compared to the benefits that this
Based on how the means of transportation is developed in the Philippine society, seeing
that transport infrastructure plays an important role in integrating the island economies of an
archipelago such as the Philippines (World Bank Group, 2010), and that there is an alliance of
organizations that started the public transport accessibility initiative as part of other programmes
promoting disability mainstreaming in different policy areas in the country (Alcantara, 2008),
the Philippines have ample state capacity to cope with the limited state of conflict. The nation
was given the rationalization of fiscal and investment incentives along with the indexing of
excise taxes to inflation as part of the measures needed to strengthen its fiscal situation for the
sake of having an enhanced tax administration, including a crackdown on tax evaders and
enforcement of anti-corruption programs in tax and customs agencies. Soon, exports will grow
in line with the global recovery and, on a net basis, are expected to contribute modestly to GDP
26
The Politics of Infrastructure
Investing in infrastructure has become a new topic for pension funds in recent years. It is
necessary in the infrastructure section because it increases capacity, reduces costs, and improves
quality. Inadequate infrastructure gives rise to congestion and delays, and to the cost of unmet
demand, while excessive investment will unnecessarily add to costs (Forsyth, 2005). Institutional
investors are trying to spread their investments across a much wider spectrum of investments
than in the past (Inderst, 2009). They are on the search for creating new sources of return and
better diversification of investment risk. Infrastructure feels more tangible and real than a lot
of other complex products and derivative strategies presented to pension funds these days,
having also difficulties in detecting the underlying value. In addition, infrastructure is made for
the long term, and there seems to be a natural fit with the long-term liabilities of many pension
plans. For some people there is also a connotation to sustainable or socially responsible
investing, which is an increasingly popular route chosen in particular by public and industry-
A number of recent studies attempt to measure the productivity of public capital. Some
estimates indicate that government investments are a potential well- spring for economic
progress, while others indicate that public infrastructure has a negligible effect on private sector
output (Oakley, 1995). This article investigates political institutions and processes underlying the
decisions for public infrastructure spending. We apply the framework of strategic models of
fiscal policy and develop an empirical model to analyze the substantial differences in public
capital across American states. Institutions such as term limits, citizen initiative, and
budgeting procedures were significant determinants of state public capital stocks and the flow of
27
new public investments during the 1980s (Oakley, 1995). The results further suggest
that political conditions such as legislative stability and voter volatility are systematically related
New Keynesian models revive the case for government spending for infrastructure--
roads, water and sewer systems, communications high- ways, and the like-to stimulate the macro
economy. The newness in the New Keynesian argument is that the effect of government
spending comes through the supply side rather than the traditional Keynesian argument that the
effects of fiscal policy derive from the demand side of the economy (Oakley, 1995). Central to
this change in perspective is the idea that public investments are different from public
multiple expansion of output, even in an economy with fully utilized private re- sources, if the
If one would be taking into consideration the public spending on public infrastructures -
roads, water and sewer systems, communications high-ways, and the like - and has a goal of
stimulating the macro economy, there is a need of an application for a framework of strategic
models of fiscal policy and a development of an empirical model for analyzing. Moreover,
institutions such as term limits, citizen's initiative, and budgeting procedures can served also as a
factor on the aspect of public spending for infrastructures (Oakley, 1995). Furthermore, a
Keynesian argument presupposes that the effect of government spending comes from the supply
and not of the demands, which has supported the central image that the article is conveying,
that the idea that public investments are different from public consumption expenditures.
28
International Aspects of Public Infrastructure Investment
An initial attention was been posed regarding the issue whether existing stocks of
public capitals are suboptimal. That it has effects, one is positive, and another is negative. In
taking not of its effects, one should be reminded that a large component of public infrastructure
investment is devoted to the extension and upgrading of transport and communications networks,
within which reduces the costs on the transport aspects, as well as, the facilitation of trade of
goods within and across the country (Bougheas, 2003). Therefore, leads us to the idea that
investment on public infrastructure benefits, not only the domestic aspect, but as well, the
international aspect.
Sustainability
means of advanced communication and transportation through technologies and machines - pose
problems to the public infrastructures; since, there is a growing need to keep up with the living
standards and to create situations for sustainable development. Thus, the lack of funds and
insufficiency of services by these infrastructures gave birth to the rise of initiatives to stimulate
private parties to invest with their resources in public infrastructures; however, there was a
challenge of the part of private sector, which restraints their participation due to the conflict on
short-term return on investment with the long-term aspect that they need to realize (Enserink,
2009). Therefore, this leads us that a help coming from the private sector is important, that their
urban environment.
29
The most thorough studies of the impacts of privatization have shown that well designed
schemes can bring about substantial increases in overall welfare. The private sectors technical
and managerial competence, combined with more sustainable pricing policies and better
financial discipline, provide more resources for investing in expansion and relax the investment
constraints which prevailed under public provision. In many cases the biggest gains from private
provision come through increased investments to meet increasing demand and serve previously
unattended consumers (Harris, 2003). Private participation has had overwhelmingly positive
impacts in cases where meaningful competition for service provision is introduced, in particular
telecommunications. In the absence of competition, on the other hand, private participation can
Efficient infrastructure can define the economic status and growth of a state because it
creates the image of being able to gather enough resources, funds, and local and international
organizations to successfully complete a certain project. There is the need of having substantial
participation of different parties in the globalization, trading and production networks in order to
development gaps and this is done in certain states through creating PPP for the development of
outsourcing public projects to private sectors, giving them the responsibility of pursuing the flow
of operations, management, and financing of a project. According to Llanto (n.d.), the most
effective and applicable approach in this type of partnership is the Build-Operate-Transfer (BOT)
30
assign certain agencies the task of identifying, selecting, and approving through accountability,
effectiveness, and transparency of the projects. BOT contracts are imbued with public interest
and should likewise be accessible to the public (Llanto, 2007). The partnership shall ensure the
efficiency and effectiveness of the project by continuously giving funds and create progress on
the project given. The importance of the BOT law in strengthening PPP is seen through the
implementation of the law in seeking the potential of the infrastructure development in the
Philippines. Despite the financial constraints due to lack of investments, PPP is still established
on projects by seeing that the funding and the project construction is still ongoing.
Public-private partnership has been defined as the collaborative efforts between the
public sector and organizations (either for profit or non-profit organizations) in the private
sectors which has the main goal of delivering and/or enhancing of services to the public, to
already exist in United States of America for about a hundred years ago, and the use of these
entities have accelerated during the 1980s and continued until the mid-2000s (Patterson, 2005).
Such partnerships are often characterized by shared responsibility, decision-making and tangible
output of risks and rewards. In this literature, it stated that there should be at least two parameters
that a certain partnership must have. First, there should be a strong relation that exists between
risks and rewards for the private partner -that the higher the presence of risk, the higher the
rewards is also should be present, and vice-versa. Second parameter suggests that there should be
a strong and positive association between risk and the degree of involvement of the private
31
Asian Development Bank
dedicated to reducing poverty in Asia and the Pacific. The economic benefits and opportunities
created by the national highways increased growth and investment opportunities for the more
well-off groups by increasing asset value, reducing transportation times and vehicle operating
costs, and facilitating trade and business opportunities. There was this research claiming that
with the establishment of national highways, the local communities can now enjoy enhance the
accessibility to socioeconomic services, the travel time of the people living outside the local
communities to their destinations has been reduced, along with the reduction of maintenance
costs and increasing profits, more services available for road transportations, and decrease of
ADBs main instruments for helping its developing member countries are policy
dialogue, loans, equity investments, guarantees, grants, and technical assistance (Asian
Development Bank, 2007). These instruments are used to keep the funding in the Philippine state
going on and the investments that they make shall help develop the society and make the
environment more convenient and comfortable. The country strategy and program (for 2005-
2007) is designed to support high-impact projects. Key features include a strategic focus on the
most urgent development constraints and working within a results framework emphasizing
reforms, has improved, as recent ADB-supported policy-based operations have indicated (Asian
32
Infrastructure development is an essential field of ADBs assistance. It is needed to
ensure sustainable development, poverty reduction, and socioeconomic growth. One example is
the project expressway located in the southeast Hebei province that links from Beijing to
Shanghai. The ADB agreed to consider financing the expressway after discussing with the
Government an expansion of the project scope to include a poverty reduction component (Jraiw,
1998). The objectives of the said project were to improve transport efficiency in southeastern
Hebei Province, and to reduce poverty in the officially designated poverty counties in the zone of
influence of the Project by improving access to the main economic centers. The Project was
designed and implemented to meet ADB strategy requirements and community expectations
The Manila North Tollways Corporation (MNTC) is an organization that has articulated
its mission as providing high quality public service through improved tollway infrastructure and
systems. It was incorporated in 1997 and was soon granted the franchise to finance, design,
rehabilitate, expand, operate, and maintain certain roads to the north of Manila under the
Supplemental Toll Operation Agreement (MNTC, 2000). Under the agreement, all legal profit
rights, interests, and privileges from Philippine National Construction Company (PNCC), the
original franchisee for the project roads, will be transferred to MNTC upon completion of the
project roads. MNTC has the right to collect tolls on the completed project roads during the
concession period, after which the project roads will return to the government. This funds
collected during the completion will help the MNTC in the continuation of maintaining the
expressway, recover its investment, and settle the long-term loans used to finance the project.
33
The financing plan envisages funding and/or partial risk cover from commercial banks, export
concerning the transportation sector, the MNTC and the Government, through the Toll
Regulatory Board (TRB), are the executing agencies of the Philippine NLEX Rehabilitation and
Expansion Project. The operation and maintenance of the Project will be the sole responsibility
of MNTC. However, MNTC should coordinate closely with other government agencies,
particularly those involved in monitoring, such as the Leighton Holdings Asia, PNCC and the
ADB. To help maintain the safety and quality of the expressway, various rules are in effect, such
as restricting the left lane to passing vehicles only and banning overloaded trucks. And because
of the benefits reaped by the country through the rehabilitation of the NLEX, other developing
countries are actually using the project as a model for government and private sector partnership.
Private sector investment in infrastructure development projects is essential since it enables the
government to use its limited resources for other vital services like education, housing,
Development Corporation of the Philippines (CDCP), serves as the original operator and
franchisee of both the NLE and SLE tollways, and a leading domestic construction company,
with a track record in the construction of bridges, toll roads and other civil works projects. The
company's scope of services in a wide array of construction and engineering works and phases
has even expanded since then, to include all project stages -- from feasibility studies, designs and
34
detailed engineering, procurement, construction and project management, concrete pre-casting,
steel fabrication, materials processing, and equipment rebuilding, have become a part of PNCC
service offerings (Department of Trade and Industry, 2008). It has engaged in tollway operations
and management and has entered into joint ventures with domestic or foreign entities, to
undertake projects in line with its purposes, as well as purchase, sell, own, hold, and develop
The company's primary purpose was to carry on the conduct of a general contracting
the years 2004-2007, the company has veered away from active involvement in its construction
operations, but rather focused more on the operation and maintenance of its tollways. But soon
enough, PNCC turned over the operations and maintenance and rehabilitation of the North Luzon
The law states that PNCC is presently substantially owned by various Government
financial institutions and has played a major role in the success of its endeavor through its
efficient construction, maintenance and operation of the toll facilities in the North Luzon and
South Luzon expressways as mandated by Presidential Decree Nos. 112 and 113 and its Toll
Operation Agreement with the Toll Regulatory Board. And by knowing that they have the
privilege of extracting funds from these tollways through payment of tolls, it is essential that the
PNCC be granted such powers and authority necessary to enable it to promote the convenience
35
Leighton Holdings Asia
Leighton Asia is one of Asias leading contractors and project developers, depending on
the ability to develop innovative, practical solutions for its clients. Since 1975, this agency has
been operating in Asia and its unique combination of local knowledge and international
experience has made it the regions leading international contractor (Leighton Holdings Asia,
2008). Leighton Asia is focused on success throughout the region and is committed to continuing
to grow and change to meet the expectations and demands of Asias communities and clients.
The maintenance of its on-ground presence, allowing it to develop local staff, enables the
The company has the financial resources and industry expertise to undertake the
development and construction of large scale and sophisticated civil, infrastructure, building and
mining projects. And with its commitment to building on a strong values-based corporate
culture, it will serve to become a significant factor in the companys growing success.
resources and property markets in Australia, Asia and the Middle East (Macquarie Private
Wealth, 2011).
The NLEX is the main and only transport corridor from the Manila metropolitan area to
central and North Luzon. It was built between 1975 and 1977 by the Department of Public
Works and Highways, its operations serving as a toll road. It was originally known to be
franchised to a private company but was then controlled by the government, specifically to the
36
PNCC (PNCC). Certain problems have been confronted by the PNCC management, such as the
continuous maintenance of the cleanliness and progressive development of the expressway, the
growing volume of traffic, unavoidable accidents and deaths, etc. In the early 1990s, the
Philippine government passed legislation that promoted and regulated the use of public-private
partnerships (PPPs) in repairing existing infrastructure and building new projects (The National
Council for Public-Private Partnerships, 2000). With the help of PPP, a law stating a Build-
Operate-Transfer (BOT) contract was implemented and it helped in modernizing and improving
the NLEX. Certain repairs, rehabilitation, and expansion have been made until now, and it would
further continue its modernization and lessening the problems occurring over and over again
According to the case study written by Ken Hawkes, everyone that passes through the
open section of the toll road is to be given a flat toll fee, regardless of the length of journey
(Hawkes, 2003). The closed section levies a toll based on the length of a vehicle's journey
through several toll sections. Notwithstanding the legal framework in relation to the presidential
decree, to date the NLEX remains one of the few successfully financed toll road project in the
Philippines, and in Asia. The Philippine government then had problems concerning the lack of
funds required for land acquisitions. And so, the original project was closed afterwards. Then,
knowing that the PNLEX project was of becoming effective in 2007 and helps in increasing the
currency rate of the Philippines, there had been reasons for refinancing the said project. Strong
cash flows and lessening of traffic volumes in the Northern part of the Philippines that also help
make a justifiable and more streamlined covenant package for all debt holders. With the success
of the MNTC refinancing, it is expected that more Philippine projects financed by foreign
37
currency debt will take advantage of the local currency capital markets to reduce their currency
exposure.
And recently, the Bureau on Internal Revenue (BIR) has imposed a 12% value-added tax
(VAT), granting toll way operators a franchise which allows them to charge tax fees despite the
unapproval of the Supreme Court for the purpose of lacking law exempting toll fees (Punay,
2011). The petitioners (Supreme Court) added that imposing VAT on tollway operations is
imposing a tax on tax and not a tax on sale of services since toll fees are considered users tax,
following the SCs ruling on Manila International Airport Authority versus Court of Tax
Appeals. The high court however said, What the government seeks to tax here are fees collected
from tollways that are constructed, maintained, and operated by private tollway operators at their
own expense under the build, operate, and transfer scheme that the government has adopted for
expressways. The VAT on toll fees is being imposed in accordance with Section 108 (A) of the
National Internal Revenue Code of 1997 (as amended by RA 9337), stating that the franchise
tax shall be imposed on all franchises on radio and television broadcasting companies, as well as
on gas and water utilities. These collections are urgently needed by the government to counter
the adverse effects of tax-eroding measures, as well as the impact of capital losses resulting from
the widespread damage wrought by Typhoons Ondoy and Pepeng in the latter half of 2009.
Before, there was a public market located in the heart of Mandaluyong City. However, in
the year of 1991, the market was been destroyed in a major fire. A problem had arisen due to the
numerous displaced vendors, in which some of them were been allowed by the government to set
up stalls and along the roads and sidewalks. But this temporary solution of the government had
38
resulted to a set of problems it had caused traffic congestion and sanitation problems
(Mandaluyong City, Philippines Case Study (Public Buildings), 2000). Thus, the Mandaluyong
government realized rebuilding the public market is of great importance for the better mean of
the Mandaluyong City. The will of the government is there but the only problem is the funding
of the project which amounts to P50 million and this was beyond the citys capability. The
answer to the problem is PPP. At first, the private companies are hesitant as regards to the
funding of the project due to the oil crisis and economic uncertainties during that time, but the
mayor took leadership strategy by including a larger commercial component in order to attract
investors, which actually happened. A business consortium of private companies under the
collective name of Macro Funders and Developers, Inc. entered in the partnership with
Mandaluyong City government in pursuing the project (Mandaluyong City, Philippines Case
Study (Public Buildings), 2000). The original design of replacing the public market was been
added by Market place, a seven-story commercial center, which includes a public market, street-
front stores, a parking garage, commercial shops, department stores, a bowling alley, and a
movie theater (Mandaluyong City, Philippines Case Study (Public Buildings), 2000). These
additional changes had cost the budget from P50 million to an estimated worth of P300 million.
The project aims to close the gap and complete the north-south Luzon industrial beltway
transport axis by connecting NLEX and SLEX. This is a public-private partnership project for
investment in the sense that the local institution involved, which is the PPP Center of the
Philippines, along with the government agency (DPWH) shall request for assistance to a foreign
state that would be interested in funding the said project. The project shall promote public-
39
private partnerships in order for the Philippines to exhibit road and transportation development
The new road will hopefully represent an integrated expressway system that will result in
a fast and efficient movement of people and goods between North and South Luzon. It would
also link Clark airport and the Ninoy Aquino International Airport, helping decongest vehicular
traffic in Metro Manila. Lessening traffic will create a large impact on the people who travel a lot
from the North to South Luzon roads because it will decongest vehicular traffic and that it
will provide a fast alternate road to existing roadways (Business Mirror, 2012). Along with this
is the development of support facilities as well as infrastructure around Clark airport to serve
both budget airlines and so-called legacy carriers that would also play a big factor in determining
inhibits the role of foreign loans in order to accomplish and continue the project simultaneously.
The project here establishes a connection with the Japanese nation-state in order to gain their
expenses through their funds. The Philippines shifted from the stage of high-quantity road
development and construction to the stage of seeking qualitative improvements. Therefore, it has
The Philippine-Japan Friendship Highway is a major highway that shall connect the 3
islands of Luzon, Visayas, and Mindanao as constructed with assistance from the Japanese ODA
loans of 10.8 billion yen. The said highway located along the eastern part of the island from
40
Davao City, the largest city of Mindanao, to the north through Agusan River Basin which was
expected to be developed as a rice production area, constructed in 1979 played an important role
in regional development through its agricultural, industrial, fishing, commercial and tourism
However, it had failed to ease the troubles of the people due to the larger volume of
traffic and natural calamities such as road damage that progressed rapidly due to unsuitable
designs and inferior construction work, inadequate operation and maintenance, and incomplete
enforcement of laws against overloaded vehicles. Rehabilitation and expansion projects have
been implied here to upgrade road sufficiency and safety through 2 phases. The first phase was
to focus on rehabilitating priority sections based on the extent of deterioration of the road surface
and bridge. While on the second phase, they were to improve the roads, building bridges for the
The main contractors who have spent over 1 billion yen for the project here are the
following: Phase 1: MAC Builders, Persan Construction, Toledo Construction Corp., EEI
Corporation, DIMSON Inc., and J.M. Luciano Construction Inc. (Philippines); Phase II: China
State Construction Engineering Corporation (China), Shinsung Engineering & Construction Co.,
Ltd. (South Korea), and DAEWOO Engineering & Construction Co., Ltd. (South Korea).
As for the main consultants who used 100 million yen are Katahira Engineering
International (Japan) for Phase I, and the DCCD Engineering Corporation, DEMCOR Inc., the
SCHEMA Konsult Inc. (Philippines), and the Katahira Engineering International (Japan) for
Phase II.
41
CHAPTER III
METHODOLOGY
This chapter presents the research design, the data gathering procedure and the treatment
Research Design
In assessing the dynamics between the partnerships of the Asian Development Bank,
Manila North Tollways Corporation, Leighton Holdings and the Philippine National
model. Using the structural-functional model, the organizational structure, inline with their
respective functions are analyzed. The analysis of each structure would determine the manner
and the patterns of interaction each party employ in the decision-making process as well as their
intended objectives in participating in the funding and undertaking of the Philippine North Luzon
This paper concerns the development and use of public-private partnerships in the
analysis of its dynamics in the funding and undertaking of the PNLEX Rehabilitation and
Expansion. Specifically, it reports on the understanding in the said subject through the applicable
representatives of the parties involved would determine how the behaviors and the patterns of
In assessing the dynamics of the partnerships between ADB, MNTC, PNCC and
Leighton Holdings Asia, two types of data would be gathered namely, primary and secondary
42
data. These data would be gathered via gathering of first-hand information through the
Primary Data
The study of assessing the dynamics of the partnerships between ADB, MNTC, Leighton
Holdings and PNCC would consider the authorities inside the respective institutions as their
respondents. The authorities within the said institutions are in the best position to comment and
render baseline information on the occurring partnership and possible future prospects of the
PNLEX projects, meaning the developments that occur from the start of the project.
A sampling procedure would not be necessary considering that the partnering institutions
i.e. ADB, MNTC, PNCC and Leighton Holdings does not actually involve a population. An
interview with the respective authorities of each institution would be used in gathering the
necessary information for the assessment of the partnerships and its impact on the PNLEX
Rehabilitation and Expansion. Thus, arrangements with the respective offices of the parties
concerned would be made in order to gather credible data on the mentioned project. There would
be a dialogue between the respective authorities of each institution. The dialogue shall cover the
present state of the partnership between ADB, Leighton Holdings, MNTC and PNCC. Issues on
the beginnings of their partnerships, developments, and future prospects as regards those
partnerships are concerned would be covered. In terms of dynamism, the whereabouts of the
partnerships i.e. the benefits each party gets in participating in the project would be taken into
account. This would also include the developments that the PNLEX project has contributed to
43
Secondary Data
Apart from the interview method and the use of vital documents pertaining to the
partnership of the parties involved would be employed. The documents to be accessed in the
respective offices of each party would be the basis to objectively assess the partnerships between
the parties in terms of its impact on the PNLEX Rehabilitation and Expansion. Furthermore,
since a survey would not be conducted and data could not be quantified, the documents, figures,
case studies and the previous projects conducted by each of the institutions concerned would be a
used. Vital documents bearing the expenses, benefits, returns, interests and probably deficits of
the project would be analyzed. Transcripts of board meetings between the parties involved would
likewise be requested for information on the whereabouts of the current state of their partnership
In addition, case studies and more extensive research regarding reviews of the
partnerships and or projects engaged by each institution apart from the PNLEX Rehabilitation
and Expansion would also be accessed. This is to be able to see if there are any existing patterns
in each institution when they engage in partnerships in undertaking projects intended for public
use.
Treatment of Data
The data to be gathered from the interviews and documents that would be provided by the
institutions would be analyzed and afterwards, be assessed. The partnership would be evaluated
according to a criteria that would give objective results and assessments and support the claim of
44
Treatment of the Primary Data
The primary data that would be employed in the present study would be the interviews
that would be conducted with the representatives of ADB, MNTC, PNCC and Leighton Asia
concerning the PNLEX Rehabilitation and Expansion. The interviews would be used to provide
perceptions and insights of each company as regards the said project and validate the claims
presented in the data and studies conducted by each institution when engaging in PPP.
In treating the primary data, the study would be adopting the model used by Levinson et
al in his study, A Framework for Assessing PublicPrivate Partnerships which covers the
following areas for assessing PPP: support for the PPP project by the government, the private
sector and the people, the satisfaction of the objectives as defined in their respective contracts or
agreements and how well these roles are defined, the extension of the project or undertaking of
new projects with similar parties, the manner the project improves the efficiency of the system,
the equity of the system, the environment and the experience of users of the project i.e. the public
(Levinson, 2006). Each of these areas would be used in assessing the opinions, insights and
statements made by the authorities of the parties concerned during the conduct of the interview.
In addition, the study would also employ the model by Thomsen in his study Assessing
the Impact of Public-Private Partnerships in the Global South The Case of the Kasur Tanneries
Pollution Control Project. In this model, the PPP was assessed in the following areas: Impact,
Efficiency, Sustainability, Participation and, Accountability (Thomsen, 2007). This would cover
both the involvement of the private sector as well as the government and all the other players
involved in the decision-making process of the PNLEX Rehabilitation and Expansion. The
coverage and results of the interview would likewise revolve and be grounded in these areas.
45
These two models of assessing PPP would be used in assessing the PPP in the PNLEX
Rehabilitation and Expansion. The areas employed by each model would be used in grounding
the assessment of the dynamics of the partnership the decision-making, the benefits and
interests of each party and the impact of the entire partnership to the project and the
transportation and road sector as a whole, and give an objective discussion from the subjective
The secondary data for the present study would refer to the documents, contracts,
transcripts, reviews, journals, case studies and other printed or electronic material that concerns
any of the parties involved when they engage in PPP. The data that would be gathered would be
analyzed using the same models employed in treating the primary data.
The figures that would be gathered from the documents used by each company in their
respective PPP projects would be grounded on the same areas of support for the PPP project by
the government, the private sector and the people, the satisfaction of the objectives as defined in
their respective contracts or agreements and how well these roles are defined, the extension of
the project or undertaking of new projects with similar parties, the manner the project improves
the efficiency of the system, the equity of the system, the environment and the experience of
users of the project i.e. the public in Levinsons model. Reviews of the PNLEX Rehabilitation
and Expansion, if available, would be accessed to validate any statements given by the
Using the model of Thomsen, on the other hand, the partnership would be assessed on the
46
that would be revealed in the reports during the undertaking of the PNLEX Rehabilitation and
Expansion would likewise validate the claims of each party in their involvement in a PPP
Project.
Using these two models for treating the secondary data, the study also attempts to look
for patterns when each party engages in PPP projects. The records of each institution would
serve as a guide and basis for the patterns of interaction that may emerge during the undertaking
of the PNLEX Rehabilitation and Expansion in comparison the previous PPP projects the parties
47
CHAPTER IV
This chapter presents the results and discussions through the presentation, analysis and
interpretation of the data gathered, and in doing so, answer the problems posed by the research
study. In answering the problems posed by the research study, it is important to establish a link
between the theories used and the former. The theories would serve as a guide in arriving to
The theories that were used in studying the partnerships between the international
funding institutions, principally the Asian Development Bank, Leighton Holdings, Manila North
Tollways Corporation and the Philippine National Construction Corporation, in financing and
managing the PNLEX Rehabilitation and Expansion are Reciprocity Norm, Investment Model
and Partnership Theory. Before proceeding to the discussions of the results from the data
gathered, a short recap as to what these theories are will be employed for clarity. Reciprocity
Norm implies that if one has given something to someone, that giver shall receive something in
return for what he or she has given be it either, a tangible or an intangible thing (Reciprocity
Norm, 2002). The Investment Model is a theory or model that suggests the idea where a
particular relationship between individuals or group of people mainly depends on its existence or
establishment on the satisfaction of each party, which is influenced by the rewards and costs and
what the parties see as a fair balance; comparison with other potential alternative partnership; the
degree of effort or amount that the individual or group has invested in the relationship or
partnership. Furthermore, it also contains the idea that parties, who have invested heavily in the
relationship, are the ones who are more likely to stay inside the relationship (Investment Model,
48
2002). Lastly, the Partnership theory infers the idea that partnerships are created for purposive
goals. Partnership theories have a life-cycle that contains four key stages, namely: initiating,
The theories are utilized in order to understand the reason and the manner the whole
process of public-private partnership between the institutions involved namely MNTC, ADB,
PNCC and Leighton Holdings happens. The Reciprocity Norm is used as an invisible guide in
understanding the whole process of the said partnership. This theory is mainly used in the
process where giving and taking transpires. For instance, the theory can be used in understanding
the funding of the Asian Development Bank to the rehabilitation and expansion project on the
PNLEX in such a way that it takes into consideration what does the ADB gets in return by
funding the said project. The Investment model is mainly concerned as to why these institutions
are still in the said partnership. One of the assumptions of the theory can be used to explain such
the simple reason is that they have already invested a lot in it e.g. ADB releasing a total cost of
70$ million. As to the concept of satisfaction, which is what this theory primarily suggests as to
why parties stay in a relationship; wherein, the satisfaction of the parties are first, influenced by
what the parties see as a fair balance in terms of rewards and costs those institutions, ADB,
MNTC, PNCC and Leighton Holdings take into consideration the benefits that they get, as well
as, if their interests are being pursued with the partnership that they have agreed to be engaged
with the benefit of the PNCC with regard to the partnership is that it is able to collect revenue
that is used to deliver services, and at the same time it is also able to pursue its interest, which is
by being able to contribute to the rehabilitation and expansion of toll roads that will cater to the
needs of those who avail the road network. The other key component of this theory is on the
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view of other potential alternative partnership. This component is applied at the initial stage
wherein the Philippine government (such as the instance where the Philippine government
partnered with MNTC) -recognized the potential of the private sector, as a partner for building a
path towards national growth and development. The third theory, which is the Partnership theory,
is chiefly used as a tool here for understanding the whole processes that the partnership had
undergone. The 4 key stages of a partnership was of paramount importance here; wherein, the
first stage initiating stage was used to explicate the relationship or process between the MNTC
and ADB (with the initial intervention of the Philippine government), where this stage is concern
primarily on who started the partnership. Starting is the second stage, where the process or
relationship between the ADB and PNCC is the primary subject here. This stage is concerned on
reviewing what is happening and finalizing as to who are involved in the partnership. The third
stage is the doing stage, where the relationship between PNCC and Leighton Holdings are taken
into account. This stage is essentially concerned on the actual developing and starting of the
project occurs. The last stage, which is the finishing stage, involves the assessment part of the
whole process.
What kind of partnership does ADB, MNTC, PNCC and Leighton Asia have on the
The partnership between ADB, MNTC, PNCC and Leighton Asia in the PNLEX
Operate-Transfer. This is the process of enhancing the PNLEX road network in order to deliver
better services that will cater to the convenience of the road user. It would be operated by private
firms for the time-being i.e. the concession period when the road network is still undergoing
50
rehabilitation and the expenses from the rehabilitation are still being recovered. At the end of the
concession period, control of the management of the PPP project would be turned over the
government thus placing complete control on the government after the contract with the private
sector has ended. The government will then operate the road network and manage the toll
collection not only to collect revenue from the returns paid by the users but complete and total
In the case of the Philippine North Luzon Expressway, the rehabilitation process was
done in the road network through the addition of 14 interchanges, 24 bridges, and 31 overpasses
from Manila to the Clark Special Economic Zone and; the efficient and computerized tax
collection and traffic management system. The management of the toll collection and the
maintenance of the road network for the time-being is handled by MNTC, a private firm
generating profit from the returns of the toll rates being paid by PNLEX users. Leighton Asia
also manages the project by being the contractor. PNCC is the government agency of whom the
control of the management of PNLEX, at the end of the concession period in 2037 will be turned
over to.
purposes, roles and benefits derived from the said project. The parties involved benefit from the
decision-making activities of the management and funding of the Philippine North Luzon
Expressway Rehabilitation and Expansion through the fulfillment of their own roles and
purposes for the completion of the project. Table 4.1 shows a matrix of the roles, benefits and
interests of each institution participating in the PNLEX Rehabilitation and Expansion. It shows
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that the institutions participating in the PNLEX Rehabilitation and Expansion project come from
different sectors and represent different interests for their respective benefits.
Table 4.1
Roles, Benefits and Interests of Partner-Institutions in the PNLEX Rehabilitation and
Expansion
The role of the Asian Development Bank in the PNLEX Rehabilitation and Expansion is
to finance the project. It releases money to the government in the form of loans in order for the
project to possess the means to start. ADB classifies the transports sector as an operational
priority based on need expressed by its developing member countries. This shows that ADB is
52
interested in investing in urban development projects. It focuses on the transport sector to make
the best use of scarce resources, enhance its responsiveness to clients, mobilize resources, and
concentrate on development impact (ADB, 2008). With that focus and interest of ADB, it
benefits from funding the PNLEX Rehabilitation and Expansion through the payment of the
interests acquired through loans both by the Philippine government and the private sector. ADB
investments on urban development projects gains returns from the interests of their loans being
paid to them. With the loans earning interests in the duration of the project, it implies that the
return of investment of ADB through the financial assistance it releases allows them to invest on
The funding of ADB would not be possible without partnering with the respective
government it aims to invest on its developmental projects. In the case of the PNLEX
Rehabilitation and Expansion, ADB partnered with the Philippine National Construction
Corporation in order to undertake the said project in the Philippines. PNCC belongs to the public
sector an agent of the government in carrying out its tasks in doing public service, thus making
PNCC a service-oriented institution. The agenda of PNCC in this project is to rehabilitate and
expand the toll road in order to cater to the needs of the road users. In line with this aim, PNCC,
being a member of the public sector collects revenue in order to deliver its desired services.
PNCC has been credited for major road projects, particularly in this case, the North Luzon
Expressway(PNCC, 2010). With the investment of ADB in the Rehabilitation and Expansion of
PNLEX, PNCC is once again the government institution tasked to undertake such project.
The role of PNCC in the PNLEX project is to serve as the government agency that will
initiate the construction of the road network, collect revenue and enhance its delivery of
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services. Its business model includes the invitation of interested entities and expertise in toll
operations, whether local or foreign, while insulating toll revenues from undue political pressure.
Second, it aims to expand and rehabilitate toll roads to world-class levels the end goal for
PNLEX, to cater to the needs and expectations of road users while maintaining manageable toll
rates and be covered by their franchise (PNCC, 2010). In this kind of model, PNCC gears
towards enhancing the road transport sector to deliver quality services to its users. This is in line
with the preparation of the PNCC to be developed and stable enough when the management of
the road network is transferred to the government by the end of the concession period in 2037. Its
success in inter-institutional projects will imply that partnerships with the Philippine government
would lead to sustainable development in the respective sector because it is efficient and it
Apart from PNCC and ADB, the private sector also has certain participation in the
PNLEX Rehabilitation and Expansion through the Manila North Tollways Corporation. MNTC,
the toll collection of the PNLEX. As the services of the PNLEX continue to progress, the toll
rates for the use of the road network increase. MNTC, as the manager of the toll collection, is
geared towards making profit out of the services. However, despite the profit-orientation of
MNTC, the management of the toll collection includes the payment of the debt to ADB for
financing the project. Therefore, even if MNTC is a profit-oriented institution, it still caters to the
public and contributes to development through the its management of the toll collection. The
returns from the toll collection do not all go to MNTC. Certain portions of the returns go to the
payment of the ADB loan and certain portions of the returns got to PNCC. This implies that the
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management of the tollways by PNCC also contributes to development because, not only does it
gain profit from participating in the partnership, but also, the shares of PNCC and those intended
to pay the loan to ADB are funds that are being used to render public services and continue the
subsidiary of Leighton Holdings. Leighton Holdings is another private company that engages in
transport infrastructure, in this case the road sector. Leighton Holdings participates in partnership
participation on development projects, it takes into account risk management, rehabilitation and
it in their business strategy (Leighton Holdings, 2011). With Leighton Asia adopting this model
when participating in joint projects geared towards development, this implies that this private
contracting company is not solely focused on profit but also participates in the delivery of public
service in promoting public welfare and contributes to the development of the road transport
sector as a whole.
The partnership of ADB, PNCC, MNTC and Leighton Asia is geared towards sustainable
growth on the road transport sector. With the rehabilitation of PNLEX, the partnering institutions
quality services to the users of the road network, it also served the arbitrary interests of every
participating institution. The purpose of contributing to the development of the road transport
sector as a whole, together with the interests of the parties involved being served affect the
The management made in the funding and undertaking of the PNLEX Rehabilitation and
Expansion is an inter-institutional management where the public sector and the private sector are
represented in the investment of ADB in projects that will eventually lead to sustainable
ADB in accordance with their particular roles as institutions and their orientations as to whether
they are service-oriented from the the public sector or profit-oriented from the private sector. The
public sector is geared towards delivering quality services thus, in this case, PNCC seeks to
deliver quality services in the road transport sector by fulfilling its purpose of upgrading toll
roads of world class standards. This purpose of the PNCC is parallel to the purpose of ADB in
The management of the PNLEX Rehabilitation and Expansion was first initiated by ADB
when it decided to fund the project. The goal of ADB is the creation of necessary infrastructure
that will contribute to sustainable development. The role of Asian Development Bank in the
Philippine North Luzon Expressway Rehabilitation and Expansion is that it is primarily, the main
financier of the aforementioned project. The Board of Directors of ADB has approved a loan
worth $45 million and a complementary loan worth 25$ million to the Manila North Tollways
Corporation (MNTC). The two loans that were used to finance the said project came from
ordinary capital resources of the bank (ADB, 2011). With this being established, ADB needs
partnering institutions from the country it decides to invest thus, PNCC and MNTC, manages the
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toll collection in order to pay the loan to ADB for funding the PNLEX Rehabilitation and
Expansion.
Rehabilitation and Expansion is done through the participation of the different partnering
institutions namely, ADB, PNCC, MNTC and Leighton Asia. The rehabilitation is being
managed by Leighton Asia. Leighton Asia is the contractor assigned to undertake the said
project. With that established, it manages the rehabilitation through the actual process of
enhancing the road infrastructure through the addition of roads, bridges, sky ways and
intersections. This private firm manages the creation of the road that will sooner be operated by
MNTC and the government through PNCC in order to pay the loan to ADB for funding the
PNLEX Project.
The operation process of the PNLEX Rehabilitation and Expansion i.e. the collection of
toll rates for the purposes of profit, revenue and paying the loans to ADB, is being managed by
MNTC and PNCC, respectively. MNTC manages the operation of the PNLEX Rehabilitation
and Expansion through facilitating the toll collection by establishing the toll rates that users of
the road network will pay in exchange for the service they receive. MNTC controls the toll rates
of the PNLEX depending on the costs that the rehabilitation and expansion of the road network
will incur. Table 4.2 shows the projected and actual Economic Internal Rate Returns (EIRR) of
the ADB from the collection gathered by the MNTC from the toll rates paid by NLEX users.
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Table 4.2
Margin 14.70%
Minimum 10.00%
Indicator Rate
The figures shown are based upon the collections made by MNTC in its toll collection
during the present concession period where it still forms part of the decision-making body in the
undertaking and funding of the PNLEX Rehabilitation and Expansion. It shows the economic
sustainability of the road project by having an actual return of 11% from the investments of ADB
1% above the minimum indicator of the ADB for project sustainability. Even if the EIRR did
not meet its projected rate of return, the management of MNTC with the toll collection made it
possible for the project to attain and rise above the minimum quota for economic sustainability
of the project. This kind of management and rate of returns may create a positive future for the
PNLEX once it is turned over to the government at the end of the concession period in 2037.
On the other hand, the management of the PNCC in the PNLEX is to collect revenue
from its share from the returns collected from the toll rates motorists pay in exchange for the
services the road network gives. The participation of PNCC in the operation of the PNLEX is to
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initiate the expansion and rehabilitation of toll roads to global standards, and at the same time,
keep the toll rates manageable for the users of the road network (PNCC, 2010). However, the
management of PNCC in the PNLEX would only completely manifest once the Transfer Phase
transferred to the PNCC at the end of the concession period at 2037, the system of management
of the partnership and the partnership itself would cease to exist. Once PNLEX management is
transferred to PNCC, the government has the sole control in the decision-making of the road
network but, it also possesses the sole responsibility of collecting the toll rates for revenue,
initiate and improve the road network when necessary and possibly, use government funds in
order to further enhance the road or to facilitate the payment (if any) outstanding balances to the
ADB from the loan acquired during the start of the project.
The management made in the funding and undertaking of the PNLEX Rehabilitation and
Expansion is dependent on the roles of each institutions and their specific functions in
undertaking partnership projects. ADB invests on project that are intended for sustainable
development. It calls upon the corresponding government institution to initiate the undertaking
of the project in this case PNCC. Once the project has been initiated, contractor bid resulting
for Leighton Asia getting the contract for the undertaking the rehabilitation and expansion of the
PNLEX. The management of toll collection is under MNTC, pa private organization seeking to
gain profit in its PPP participation while sharing the returns with PNCC that seeks to generate
revenue for the improvement of services and; pay the loans used for undertaking the project to
ADB through the collected toll rates. Once the transfer stage in 2037 is done and the
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the decision-making and management of the PNLEX and possess all the responsibilities
What factors in the partnership affect the management of the PNLEX Rehabilitation and
Expansion Project?
The partnership between and the roles of the ADB PNCC, MNTC and Leighton Asia are
all contributory to the funding and undertaking of the PNLEX Rehabilitation and Expansion.
The roles of each institution all consider a certain standard as to the manner of they are going to
evaluate the project once the concession period starts. The ADB has developed a certain criteria
that will determine the factors that shall evaluate the management of the PNLEX Rehabilitation
and Expansion. The criteria development impact, investment profitability, work quality; and
additionality, were based on the analysis of data from previous review missions and site visits for
the end purpose of having a guideline that will serve as a model, as well as, to encourage the
participation of the private sector in the transport sector. (2008 Extended Annual Report, 2008).
Overall, ADB assessed the development impact of the project as excellent. The rating is
based on the criteria of private sector development, business success, economic sustainability
and environment, health and safety performance. ADB considers its social responsibility,
stakeholders in its projects, cooperation and integration of partnerships, the strength of the
investment climate by calculating risk management, social impact of the project and the
improvement on governance (ADB, 2008). ADB being the main financier of the PNLEX
Rehabilitation and Expansion is geared towards sustainable development through its investments
in the form of loans on development projects. In the course of its funding of projects for
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development, ADB does not only focus on the particular sector it directs its money into. It also
considers other stakeholders that would be affected by the project that it plans to pursue in order
to minimize damages thus, promoting development not only to particular sectors in this case,
The PNLEX is the first major expressway in the country that is built, operated, and
maintained conferring to international standards by a private sector company. The project is now
being viewed by other countries as a model for government and private sector partnership for the
reason that the project on the PNLEX yields benefits to the Philippines (ADB, 2008). Table 4.3
shows the rating of ADB in terms of its performance in the PNLEX Rehabilitation and
Expansion.
Table 4.3
In a scale of 1-5 with 5 being rated as excellent, 4 being rated as very satisfactory, 3
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rating of ADB in the PNLEX Rehabilitation and Expansion is rated satisfactory in terms of
private sector development, business success, economic sustainability and, environment, health
and safety performance. Private sector development was rated satisfactory because the PNLEX,
being a benchmark project for the toll road sector, paved the way for further private sector
participation and made government policy to endorse PPPs in the road sector (ADB, 2011). In
addition to that, the participation of MNTC, a private institution, in the toll management of the
PNLEX shows that ADB recognizes the vital role of the private sector in development project it
finances.
satisfactory. These are two complementing areas in the ADB performance ratings because both
deal with the losses of ADB in comparison to its gains. Business success was measured by the
projected volume of traffic in PNLEX in comparison to the actual volume of traffic which
turned out to be lower than expected. Although the traffic volumes were low, cash flow was
good (ADB, 2011). Given such situation, the initial stage of payment to ADB was made on time
(ADB, 2011) thus, implying that the joint venture on business and road service is efficient in
Economic sustainability, the other hand, was measured in terms of the economic internal
rate return (EIRR). The return was also lower than expected being computed at 11% lower than
the 25.7% projection, according the ADB annual report (2011). However, the EIRR of their
investment in the PNLEX Rehabilitation and Expansion is above 10% (ADB, 2011), probably
their minimum indicator for sustainability, implies that the project is still sustainable and its
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contribution to development outweighs the difference in margin between the project and actual
EIRR.
environmental guidelines of ADB has been adopted by MNTC. The standards of ADB on this
matter are being monitored if the conditions of the project, as well as the surroundings of the
project, in order to address issues on environment and social concerns (ADB, 2011). The role of
ADB in the PNLEX Rehabilitation and Expansion goes beyond investing on loans to finance
projects that are geared towards development. ADB also plays a communitarian role by
considering the environment and social concerns other stakeholders in society, before they
In addition to the factors set by ADB among its partner-institutions that would evaluate
their performance in the PNLEX Rehabilitation and Expansion, it is also important that the users
also evaluate the enhanced road network. The impact to development of the PNLEX
Rehabilitation and Expansion was determined by interview with some NLEX users i.e. bus
companies who transport travelers to Northern Luzon via PNLEX. Victory Liner, the biggest bus
company bound for Northern Luzon, gave their opinion on the results of the PNLEX
Manila, convenience both for the management and the passengers was enhanced because of the
increase from the 3 lanes to 5 [or 6 lanes] making the route wider, thus making the travel time
faster for those who pass through the PNLEX. The time allotted for travel decreased significantly
upon the rehabilitation and expansion of the said road network. According to Victory Liner
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management (2012), the time for travel for traversing Balintawak to the San Fernando exit has
Another concern of NLEX users are the toll rates being paid in exchange for the use of
the said road. According to the management of Victory Liner Manila, the behavior of toll rates
tending to increase in the long-run is justifiable because, first, when the toll rates increase, the
transport fare would also increase, in that way they are not drastically affected. Secondly, the
vehicular parts that were used by those who traveled prior to the expansion and rehabilitation
project of PNLEX route only lasted for about half-year because the road surface is rough, which
contributes to the damaging of the vehicular parts; hence, more costs to the vehicle owners, but
after the said project on the road network has been implemented, the vehicular parts of those
vehicle that traversed the said road network last for a year because of the wide and smooth road
surface; hence, less costs to the vehicle owners more convenience. Thirdly, the use of gasoline
became cost-effective in the sense that the route traversed by these motorists are more uniform as
compared to the old NLEX wherein there are shifting of lanes that happen, which leads to more
travel time and higher volumes of traffic. After the rehabilitation and expansion of the PNLEX,
certain motorists had a uniform path to travel, which makes their travel faster and more
convenient compared to the experience prior to the rehabilitation and expansion project of
PNLEX.
Convenience, safety, and the degree on the decrease of dilemma for travelers and
transport operators regarding the use of PNLEX were compared and rated on a scale of 1-5 with
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unsatisfactory and 1 as very unsatisfactory. Table 4.4 presents the ratings of NLEX users
Table 4.4
PNLEX Ratings before and after Rehabilitation and Expansion
Safety 3 5
Convenience 3 5
Before the rehabilitation and expansion of PNLEX, safety was rated 3 meaning
satisfactory. This means that the safety of NLEX users in using the said road is only at a minimal
level. This is because there are only about 3 lanes, which leads to traffic congestion and risks of
accidents. On the other hand, safety was rated 5 meaning excellent when the results of the
rehabilitation and expansion manifested. The increase of lanes, interchanges, bridges and
overpasses further ensured the safety of the road users because the addition of more areas for
satisfactory. After the project has been implemented, convenience was rated 5 meaning
excellent. The increase of lanes and the addition of features in the enhanced road network made
traveling to Northern Luzon more convenient. Time for travel was decreased because vehicles
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can now travel faster in a wider road. In addition, traffic congestion in NLEX has been
minimized. The additional road features give more ways for travelers to take when bound for
Northern Luzon thus, they are not confined to a single route where they all crowd prior to the
implementation of the project, and rated 5 meaning excellent, after the project has been
implemented. This means that now that the results of the rehabilitation and expansion of PNLEX
is manifesting among its users, the travel dilemma of those who pass on the road is reduced. The
rehabilitated and expanded PNLEX reduced travel dilemma by decreasing travel time because
vehicles can now travel faster, decreasing traffic congestion and decreasing the risk of accidents
There are advantages that the Philippine North Luzon Rehabilitation and Expansion
Project had contributed, not only to those who are availing the services of the PNLEX but as well
as to the operators of the said road network and to the whole community as well. The primary
advantage of the PNLEX Rehabilitation and Expansion is that it provided more transportation
infrastructures (interchanges, bridges, lanes, and overpasses) for the purpose of easing the
transportation in the Philippine North Luzon Expressway. The project has is its operations of a
system-wide closed-circuit television system, which enables the management, operators and
control center for a closer monitoring of traffic situations. There is also a continuous and
convenient route of the travelers through toll plazas via Electronic Toll Collection (ETC) system
(ADB, 2008). Other important factors that were assessed and used as indicators on the significant
the changes that the PNLEX Rehabilitation and Expansion Project brought into are more
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convenience, safety, a significant reduction in terms travel dilemma and an increase of numbers
MNTC, PNCC and Leighton Holdings. The benefits of an enhanced road network was brought
about by the partnership of these institutions. The manifestation of positive effects on the users
of PNLEX show that the partnership of these institutions, despite their different interests before
participating in the project e.g. revenue and profit, show signs of development in the road
transport sector. Along with efficient collection of toll for maintenance and paying of ADB
loans, the positive impact of the road network to society provides an impetus that will lead
towards sustainable development in the road transport as a whole. Therefore, with the users of
PNLEX experiencing the dramatic change in the service of the enhanced PNLEX, the
partnership significantly affects the funding and undertaking of the PNLEX Rehabilitation and
Expansion.
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Chapter V
SUMMARY/CONCLUSION/RECOMMENDATIONS
The study entitled Public-Private Partnership Assessment of the Philippine North Luzon
Expressway Rehabilitation and Expansion is about the dynamics of the institutions engaged in
partnership in order to undertake and complete the PNLEX project. The institutions involved in
the partnership are the Asian Development Bank, the Manila North Tollways Corporation, the
The ADB is the funding agency that served as the impetus to start the project. The
foreign assistance coming from ADB served as a loan to the Philippine government in order to
undertake the PNLEX project. This is based on the premise that the Philippine government does
not have enough funds to create such a road network expansion. PNCC is the government
institution representative of the public sector, in the said project. It is through the government
by which ADB directed its funds in order to undertake the said project. MNTC is the private
institution that manages the collection of the toll fees at the same time, the increase and decrease
of the toll rates depending on the necessity to do so. This is being done by MNTC in order to be
able to pay the loan to ADB in constructing the project. Leighton Asia, is the institution to which
the contract is given to undertake the PNLEX project. It is the goal of the present study to assess
the dynamics of the partnership of these institutions i.e. their participation in the PNLEX
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In assessing the dynamics of the partnership of ADB, MNTC, PNCC and Leighton Asia
in the PNLEX project, the study seeks to answer the principal question How does the
partnership between the ADB, MNTC, PNCC affect the management of the funding and
undertaking of the PNLEX Rehabilitation and Expansion?. In line with answering the principal
question, the study needs to answer the following sub-questions: 1) What is the role/participation
of ADB in the PNLEX Rehabilitation and Expansion; 2) In what way will the parties involved
benefit in the decision-making activities with regard to the PNLEX Rehabilitation and Expansion
Project?; 3) How does the contribution of each partnering agency contribute to the success of the
project and the development of the transportation and road sector as a whole?. In answering these
questions, the study aims to support the claim that the dynamics of the partnerships between
international funding institutions, principally the ADB, private companies, Leighton Holdings
and MNTC and, the PNCC significantly affect the management of the funding and undertaking
The study would primarily benefit the NLEX users. Knowledge of the partnership for the
undertaking of the PNLEX project would make motorists understand the manner toll systems
work and why toll rates change the way it does in the present society consistently increasing.
Likewise, the stakeholders would benefit the same from the study. The study would reflect the
efficiency of the partnership and draw prospects about the engaging in future partnerships for
other different projects. The study would also be beneficial to law-makers. With the partnership
accountability and impact, law-makers can create sound policies that could serve both the
interests of the users of the PNLEX as well as the stakeholders who manage it. Lastly the study
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would be beneficial to the academe. The study can offer recommendations to future researchers
who plan to venture in the field of public-private partnerships. Given that public-private
partnership is the current trend for government business, the study contributes to the academe by
The study covers assessing the dynamics of the partnership i.e. the decision-making
process and management of the PNLEX Rehabilitation and Expansion between ADB, Leighton
Holdings, MNTC and PNCC in terms of efficiency, impact on the project and its contribution to
the development of the road transport sector as a whole. The role, benefits and interests of every
participating institution is covered by the study in order to fulfill the purpose of assessing the
dynamism of the respective partnership. The study is therefore limited to these four institutions
only and other funding institutions who help in the success of the PNLEX Rehabilitation and
Expansion would not be considered. The study only refers to the decision-making process done
by each party in pursuance of their respective goals, interests, benefits and objectives on the
comparison of the structures and functions of each participating institution in the PNLEX project
would determine their respective roles in the decision-making process of the project as well as
their benefits for participating in such project. In doing so, the data necessary for the study would
be gathered via interviews and dialogues classified as primary data, and via documents i.e.
journals, annual reports and other archival materials classified as secondary data. The data
gathered would be used for analysis and assessment of the partnership using Thomsen's and
Levinson's model of assessing private partnerships. The areas set by these models would be used
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in order to have an objective ground for the assessment of the partnership that covers the
decision-making, roles, benefits, interests and impact of the partnership to the road transport
sector.
Conclusion
The partnership of the Asian Development Bank, the Manila North Tollways
significantly affect management of the funding and undertaking of the Philippine North Luzon
Expressway Rehabilitation and Expansion. The roles played by each of the partnering
institutions all contributed to the success of the management of the funding and undertaking of
the PNLEX Rehabilitation and Expansion. The following are the findings that lead to the
each institution in the partnership is determined by their specific roles, purposes and
benefits that each of them derive from participating in the PNLEX Rehabilitation and
Expansion. While each of the partnering institutions are serving their particular interests
for participating in the PNLEX Rehabilitation and Expansion, they, in the process,
significantly affect the management of the funding and undertaking of the enhancement
of the said road network through the fulfillment of their roles and purposes inside the
partnership.
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2. The management made in the funding and undertaking of the PNLEX Rehabilitation and
institutions and their orientations as to whether they are service-oriented from the the
Transfer process, Leighton Asia fulfills the rehabilitation process being the contractor
tasked to rehabilitate and expand the PNLEX. MNTC and PNCC manage the toll
collection of the PNLEX in the operation process. MNTC seeks to gain profit by having
control of the toll rates however, apart from profit, it also manages the payment of the
loan to ADB. PNCC on the other hand seeks revenue from the returns of toll rates. Its
more crucial role is when it takes complete control of the system at the end of the
concession period in 2037 in the transfer process, where the management of all the
whereabouts of the enhanced PNLEX would be under its control and responsibility thus,
business success and environment, health and safety performance. Each of these
standards were evaluated by ADB as satisfactory. The development impact of the project
was evaluated as excellent. This means that the partnership significantly contributed to
the enhancement of the road network through the manifestation of positive results among
its users. This was proven by ratings of PNLEX users e.g. Victory Liner Inc. that claimed
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that the safety, convenience and the reduction of travel dilemma actually changed from a
mere satisfactory rating to excellent. The PNLEX Rehabilitation and Expansion not only
benefited travelers bound north but also the bus operators who have reduced the risks and
Recommendations
The positive impact and efficient service of an enhanced road network, brought about by
the Philippine North Luzon Expressway Rehabilitation and Expansion, by the partnership
between the Asian Development Bank, Manila North Tollways Corporation, Philippine National
development projects contributes and could serve as a road to sustainable development. With
General Recommendation
The present study would like to recommend that the government further venture on
public private-partnerships with regards to urban infrastructure development e.g. roads but still
with caution. PPP allows the government to gain returns without actually generating the bulk of
the capital when investing in development projects. In the case of the Philippine North Luzon
Expressway Rehabilitation and Expansion, bulk of the capital came from the Asian Development
Bank and paying the loans is the Manila North Tollways Corporation. The government, through
the Philippine National Construction Corporation simply generates revenue from their share on
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The PPP in the PNLEX project can serve as a blueprint for government to further its
development agenda investment in urban infrastructure. With government acquiring loans and
employing the private sector to participate in the management of its projects, the government can
maximize the monetary capacity of the private sector towards development. In a nutshell, the
government ought to pattern PPP development projects after the system employed in the PNLEX
Specific Recommendations
1. More evaluation reports should be done in such kind of projects especially if it involves
large amounts of money, major stakeholders in the political and economic sphere, and the
assess or reflect whether such kind of projects contribute significantly to the development
of the nation. Aside from assessing the entirety of the said project or partnerships, such
evaluation could also look at as to which parts are working or not, which parts are
case, the organizations that are involved in the partnerships will have the notion where
they need to improve; moreover, this evaluation reports will also guide the private sector
and other external sectors to have a certain amount of knowledge as to what the
partnership or project is all about, as well as, enhance the participation of those potential
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2. More monitoring devices shall be installed in the Philippine North Luzon Expressway to
further ensure not only the safety to the motorists, but as well as, diminution of motorist
disputes as regards to whenever accidents happen in the said road network. The former
can be explained by having surveillance camera for about every 1 kilometer in the
PNLEX route. These cameras instilled throughout the whole route shall be the ones
responsible for monitoring the speed of the motorists. The reason for this is to regulate
the speed of the motorists, by not making them traverse the route too fast or too slow,
which is the reason for the collision of the motorists. As to the latter -the diminution or
reduction of disputes whenever accidents happen in the PNLEX this occurs in such a
way that those monitoring devices can determine as to which motorist is responsible
when such accidents happen in the said road network. If these devices are installed, such
benefits are indeed highly contributory to the national growth and development of the
3. Many motorists that travel through the North Luzon Expressway lack the knowledge
regarding the whereabouts of the money that they pay as toll fees. This may serve as one
of the reasons that contribute as to why there are protesters who stood against the
increase of toll fees collection. Hence, the idea of conducting seminars/forums and/or
round-table discussions for the purpose of informing the users of the PNLEX route why
such increase in terms of toll rates came about. In this sense, the number of protesters
would not only be reduced, but they will also be informed as to what and how the
processes are managed by the government and its partner institutions. In addition to this
benefit, these seminars or forums could also be used by the government agency to
75
empower or encourage people participation as regards to engaging into a Public-Private
Partnership in pursuing projects that could be beneficial, not only to the road transport
sector, but also to other sectors that are still considered as an important component for the
4. Since the study is aimed at assessing the public-private partnership , which is now the
the country, the study recommends that the idea of Public-Private Partnership be instilled
at the early young age or the youth through interest and advocacy groups. This could also
be done by incorporating PPP in the academe and this could happen by making a course
curriculum in the graduate school that is principally concerned in studying, as well as,
practicing the art and science of PPP. Through this innovation, one could ensure that PPP
will have a place in the Philippines in the sense that it will be beneficial not only to the
academe, but also to the youth who are assumed to have more capacity to be productive
hence, more potential in engaging in PPP projects, and use this as an engine towards
76
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APPENDIX A
PNLEX MAP
83
APPENDIX B
PHILIPPINE NORTH LUZON EXPRESSWAY BEFORE AND AFTER THE
REHABILITATION AND EXPANSION
84
85
Figure 2. PNLEX during the Rehabilitation and Expansion
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APPENDIX C
TRANSCRIPTION OF INVTERVIEW
Alex Facundo
Field Manager
Victory Liner Incorporated
Sampaloc, Manila
February 7, 2012
9:28 AM
L: Yung transition period po, Sir. Noong 2003, nagawa ang NLEX diba po? Tapos nag-rerehab
pa lang ito at ngayon rehabilitated na siya. Mas maginhawa po ba biyahe niyo ngayon at yung
travel time ba ay mas maginhawa po ngayon?
A: Oo naman. Kasi ngayon, mga ilan ba yun? 5-6 lanes ata. Dati 3 lanes lang eh. Kaya
maginhawang-maginhawa.
L: Paano niyo po nasabing maginhawa na nga? Gaano kalaki po ang oras sa trapik ang
nabawasan? At tsaka yung pagtipid po ng gasolina, talagang nakatipid po ba?
A: Dati kasi sa tool gate pa lang 1 hour and 20 minutes siya. So ngayon, from Balintawak to San
Fernando, 40 minutes nalang. So ibig sabihin, 30 minutes din ang nabawas. Kulang sa kalahati.
L: Sige po. Next is yung pag-taas po ng toll fee dahil sa pag-rehab po at nababalitaan pang ita-
tax ang toll fee na ito. Ngayon po, sulit po ba para sa inyo ang presyo ng toll fee o namamahalan
pa po ba kayo?
A: Kasi kapag nagtaas ang toll fee, magtataas din ng pamasahe. So sulit din. Di lang kame ang
nagtataas kundi lahat ng transportation na dumadaan.
A: Kasi pagdating sa mga piyesa, once na malubakan ang ilalim ng bus dahil sa dating baku-
bako na daan, nasisira agad ang mga piyesa. Yung dapat umabot ng 1 year umaabot nalang ng
87
half-year. So dahel sa pagganda ng daan ngayon, di ka na magkakaproblema sa pagpapaayos.
Tsaka yang pagtipid nga ng gasolina, mas nakakatipid na at mas bumilis pa ang byahe. Kasi pag
pabagal-bagal ka, paliku-liko ang bus tapos ngayon diretso na ang byahe. Mas tipid na sa
gasolina.
A: Kasi dati 3 lanes madaling madisgrasya. Ngayong 5 lanes na, pwede na dumaan ang bus sa
fast lane.
L: So, before po ng rehabilitation project, ano pong rating niyo sa safety ng kalye?
A: 3
L: After?
A: 5
A: Kasi 'pag binigay ko ang average o ang number of passengers, yun din ang load factor.
Binibilang muna namin ang mga pasaherong nakasakay bago bumyahe or umalis ng station ang
bus.
L: Opo.
A: Pag salubungan, mga ano Aabot siya ng 90 mahigit. Mga hundreds kada araw.
88
L: 90? So, 45 galing dito tapos 45 ang darating?
A: Oo.
A: Yung maisusuggest ko sa kanila ay Every 1 kilometer (km) may monitoring device. Kasi
yung monitoring device nasa Balintawak lang eh. Tapos sa Bulacan, tsaka sa Pampanga. Kasi
ang pag-momonitor ang lalayo. Parang ang layo.
A: Kasi yung mga aksidente, namomonitor mo nga. Pero yung impact o tama halimbawa ng
aksidente makikita mo ba? So kung malapit ang monitoring device, makikita kung sino ang may
gawa ng pagkakabangga.
L: Toll rates ho, Sir. On a scale of 1-5, 1 being sobrang mahal at di tayo nakikinabang and 5
being mataas at ang services ay naibabalik naman. Before and after ng project.
89