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LESSONS LEARNED FROM IMPLEMENTATION OF A SUCCESSFUL PPP PROGRAMME 3 PROGRAMME IMPLEMENTATION HOW DO YOU MAKE IT WORK

PROGRAMME IMPLEMENTATION How do you make it work GET FiT Uganda has created an enabling framework for renewable energy Independent Power Producers IPPs leveraging USD 450 million of investment and 158 MW of renewable power generation These results were achieved through a combination of smart design and effective implementation arrangements The day to day implementation has been instrumental to the Programme achieving highly ambitious targets resulting in a positive transformational change for the Ugandan electricity sector KfW s GET FiT programme facilitated the speedy tendering financing construction and completion of Access PV facility in Soroti Uganda The preparation to a high standard of key project documents prior to the tender significantly reduced both the risk and cost of development while the concessionary element of the tariff enables us to deliver affordable grid scale renewable energy to the state utility Stephane Bontemps Managing Director Access Power GET FiT Uganda has targeted and enabled lasting reform by working towards financial close and implementation of a portfolio of Renewable Energy RE projects Such an approach requires both attention to detail and a holistic approach all underpinned by an appropriate implementation structure Every element of this structure was carefully designed the mandate and members of the Steering Committee embedding the secretariat within the Regulator s organisation having an independent Investment Committee and by having an integrated Implementation Consultant 2

KEY IMPLEMENTATION ARRANGEMENTS THAT MADE GET FIT UGANDA WORK At the time of GET FiT launching Uganda had several of the key building blocks for success in place such as a liberalised electricity sector cost reflective tariffs an independent regulator and a pool of developers working with specific projects Nonetheless the challenges confronting ERA and KfW in terms of successful implementation were daunting and design of the implementation arrangements critical if the Programme was to succeed 1 The Secreteriat was embedded within the Regulator The starting point for GET FiT Uganda was the Government of Uganda s own target for grid connected small renewables In this regard GET FiT became the government s small renewable Programme and the Secretariat set up office together with the regulator ERA The mandate and strategic placement of the Secretariat empowered it with support from KfW s active management international standing and sector credibility to serve as a forward looking problem solver The Secretariat could effectively get to the root causes of challenges facilitate communication between stakeholders and be the go between for private investors The Secretariat represented a neutral part making the public apparatus accessible 2 A well designed governance and management structure The governance and implementation structure has been well calibrated towards achieving a resultsdriven programme that proved to be highly robust A summary of the governance and management structure and the key roles and responsibilities of the parties is provided below www getfit uganda org 3

Facilitators Observers Steering committee GoU MEMD MoFPED Development Partners Norway Germany UK and EU ERA MEMD many of the decisions had political implications The Investment Committee IC consisted of highly reputable international industry experts whose track record independence and KfW integrity was central to the overall credibility of Investment Committee IC Implementation Consultant GET FiT Secretariat Staffing and day to day management Project selection and payment commitment decisions Appraisals recommendations supervision Developer follow up reporting and communication overall program coordination KfW s delegated authority from GoU and subsequent contractual relationships underpins each layer of the governance structure The Electricity Regulatory Authority the Programme and robustness of the tender processes The committee was fully empowered to make all funding and award decisions free of political influence thus giving investors confidence that decisions would be made in a transparent manner KfW s delegated authority from GoU and ERA had an instrumental role as champion hands on approach has been vital KfW handled of GET FiT Uganda giving the Programme all aspects of Programme management and was legitimacy and clout in the energy sector active in facilitating dialogue finding solutions As host of the Programme s Secretariat and and putting decisions into motion Their role a member of the Steering Committee ERA has created investor confidence ensured ensured a continous connection between the effective non political problem solving and Programme and Government of Uganda GoU access to decision makers in GoU KfW fed the priorities ERA has been central in all aspects of SC committee with relevant decision making implementation while supporting and respecting material and presented proposed solutions the governance and decision making processes based on detailed knowledge and insight of the Programme The Steering Committee SC consisted of central government officials and funding partners This body ensured that there was ongoing commitment to results from policy makers and funders The Steering Committee met annually and was presented with key decisions and dilemmas related to implementation The high level Steering Committee created a formal feedback loop that allowed for both discussions around practical challenges during implementation as well as backing for major and or controversial decisions The embedded nature of the Programme within the sector meant that www getfit uganda org 4

3 Close and pragmatic project follow up from A to Z Over a six year period the GET FiT Uganda Programme is supporting the development of 17 renewable energy projects across the country All of these projects face their own set of technical environmental and social financial and regulatory challenges In an emerging renewable energy market the capacity and country specific experience of project developers is likely to be limited In Uganda it was discovered early on that many developers had weak capacity particularly on compliance with environmental and social E S performance standards Despite considerable efforts to push progress for individual projects severe delays occurred across the portfolio compromising the time bound targets of the Programme Negative impacts of delays were however held in check by tight supervision of development and construction as well as allocation of significant additional resources towards E S follow up which in many cases involved actual coaching mentoring for developers by the Implementation Consultant s E S team Indeed the Implementation Consultant was requested to provide flexible and on demand project supervision across the entire portfolio all the way from appraisal and selection through construction and commissioning The resources required for dedicated project follow up should not be underestimated when planning the implementation of future Programmes 5

REALITY CHECKS Experience from implementation has revealed several reality checks that should inform future designs and implementation of PPP programmes 1 In a multi year PPP programme with ambitious goals new and unforeseen challenges will inevitably arise It is thus critical that stakeholders funders in particular accept a flexible design that enables shift of focus and resources to keep the Programme on track Funders are a part of the solution not just watchdogs Empowering implementation staff to maintain focus on the key risks should be a guiding principle This requires flexible and easy access to expertise which again needs to be properly reflected in the terms and budgets for implementation 2 The devil is in the detail Reform efforts that are not closely tied to realising projects will not be market tested In the case of GET FiT targeted reform efforts were essentially a means to an end more installed capacity on an IPP basis This approach has kept all parties engaged and truly forged a link between reforms and implementation At times it was apparent that the necessary reforms were not always promoted due to a lack of expertise This required agility from the implementation staff in terms of pursuing both installed capacity and lasting reform 3 Reform efforts are demanding and dependent on appropriate human resources The amount of Technical Assistance legal services and implementation services required to successfully implement the programme was extensive and more than originally foreseen but essential to achieving results In frontier markets one should count on competence levels in the entire sector to be lower than expected A successful private investment programme requires sufficient competence and experience not only among public authorities but also developers investors and consultants 4 With the right design a PPP programme can shape the entire sector beyond the life of the programme The long term success is dependent upon authorities adopting and building on the programme s processes and templates To this end ERA and GET FiT have continuously struggled to ensure that off taker planning and investing is aligned with the grid requirements posed by the portfolio Despite these challenges Uganda has now institutionalised a cost reflective renewable energy tariff framework and emerged as one of the leading renewable energy destinations in Africa 6

KEY LESSONS Concluding remarks to potential funders of future programmatic PPPs targeting leverage and long term policy impacts Allow for flexibility in design and implementation Ensure integrity of award process Allow for flexibility in design and implementation setting up a transparent and independent award to address changing policy environment and process For investors this is essential for the other emerging needs when planning your PPP credibility of the programme even if politicians programme This should be reflected in budgeting or off takers may be reluctant to give up control contingencies and built in flexibility in contracts of granting of awards The integrity of this process The implementation staff must be mandated and must be secured One should not compromise when it comes to adequately resourced to proactively monitor the programme against its target outcomes Foster effective coordination Manage and communicate reform efforts Manage and communicate reform efforts strategically and as a means to an end namely successful IPPs When results are dependent upon shared This not only eases collaboration with authorities responsibilies between public insitutions e g grid but also ensures automatic market testing of the integration the risk profile of the programme outputs Reforms are not the primary goal but increases considerably If this cannot be avoided may end up being the lasting impact the programme must be designed to ensure an early and formal role in fostering effective coordination between the various stakeholders and thus timely performance A governance structure that caters for visible mandates and clear lines of communication is instrumental for streamlined decision making The structure should allow for continuous engagement and regular coordination between all relevant institutions within the sector A combination of political committment a dedicated local champion combined with delegated authority to KfW solution oriented donors and a well funded Secretariat Implementation Consultant was a recipe for success www getfit uganda org 7

z ABOUT The GET FiT Uganda Programme was o cially launched on May 31st 2013 the Programme which was jointly developed by the Government of Uganda the Electricity Regulatory Agency ERA and KfW was designed to leverage commercial investment into renewable energy generation projects in Uganda GET FiT is being supported by the Governments of Norway the United Kingdom and Germany as well as EU through the EU Africa Infrastructure Fund Multiconsult ASA of Norway is the Implementation Consultant The main objective of GET FiT Uganda is to assist the country in pursuing a climate resilient low carbon development path resulting in growth poverty reduction and climate change mitigation The Programme is fast tracking a portfolio of 17 small scale renewable energy RE generation projects promoted by private developers and with a total installed capacity of 158 MW This will yield approximately 770 GWh of clean energy production per year and leverage close to MEUR 400 in investments for RE generation projects with a limited amount of results based grant funding A more comprehensive description of the tools and approaches applied by GET FiT is found on www get t reports com GET FiT Secretariat ERA House Plot 15 Shimon Road Nakasero P O Box 10332 Kamp la Uganda THE GET FiT LESSONS LEARNED SERIES SUPPORTED BY