झारखÖड गजट

असाधारण अंक

झारखÖड सरकार ɮवारा Ĥकाͧशत

17 माघ, 1944 (श०)

संÉ या – 65 राँची, सोमवार, 6 फरवरȣ, 2023 (ई०)

नगर ͪवकास एवं आवास ͪवभाग

--------

संकãप

1 जनवरȣ, 2022

ͪवषयः- झारखÖड राÏय मɅ Bus Terminal/ISBT के ͪवकास/पुन[ͪवकास के ͧलए Ǔनजी भागीदारȣ हेतु

Ĥèताͪवत लोक Ǔनजी भागीदारȣ नीǓत पर èवीकृǓत Ĥदान करने के संबंध मɅ ।

संÉया-जुडको ͧलͧमटेड/पी०पी०पी०/बस èटैÖड/1038/2016/240--74वɅ संͪवधान संशोधन कȧ

मूल अवधारणा के अनुǾप राÏय के शहरȣ ¢ेğɉ मɅ Ǔनवास करने वाले नागǐरकɉ को समुͬचत नागǐरक

सुͪवधाएँ उपलÞध कराने एवं सुǓनयोिजत Ǿप से शहरɉ के ͪवकास के ͧलए नगर ͪवकास एवं आवास

ͪवभाग ĤǓतबƨ है। इस उƧेæय कȧ पूǓत[ हेतु नगर ͪवकास एवं आवास ͪवभाग, शहरȣ èथानीय Ǔनकायɉ के

माÚयम से शहरȣ ¢ेğɉ मɅ ͪवͧभÛन केÛġ Ĥायोिजत एवं राÏय योजना के माÚयम से सतत्

Ĥयासरत है ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

74वɅ संͪवधान संशोधन के आलोक मɅ शहरȣ èथानीय Ǔनकायɉ के संवैधाǓनक दाǓय×व काफȧ बढ़

गए हɇ और शहरȣकरण कȧ बढ़ती ĤवृǓत के कारण शहरɉ मɅ जनसंÉया का दबाव एवं शहरɉ के बल

पर ͪवèतार से अनेक नगरȣय समèयाएँ उ×पÛन हो गयी हɇ। अपने सीͧमत संसाधनɉ एवं अãप-

आय के बल पर शहरȣ èथानीय Ǔनकाय अपने ¢ेğɉ मɅ आधारभूत संरचनाएँ उपलÞध कराने मɅ

असमथ[ महसूस कर रहे हɇ ।

उपयु[Èत पǐरĤेêय मɅ यह अǓनवाय[ हो गया है ͩक राÏय के ͪवͧभÛन शहरȣ èथानीय Ǔनकायɉ मɅ

शहरȣ आधारभूत संरचनाओं के ͪवकास हेतु Ǔनजी ¢ेğ कȧ सͩĐय भागीदारȣ सुǓनिæचत कȧ जाए।

इस Đम मɅ Ǔनजी ¢ेğ के ɮवारा Ǔनजी पूंजी Ǔनवेश करते हुए न केवल आधारभूत संरचनाओं को

ͪवकͧसत ͩकया जाएगा बिãक उनके संचालन एवं Ĥबंधन हेतु बेहतर åयवèथा Ĥदान कȧ

जा सकेगी ।

लोक Ǔनजी भागीदारȣ कȧ åयवèथा अपनाये जाने के फलèवǾप ͪवͧभÛन आधारभूत

संरचनाओं के Ǔनमा[ण हेतु राÏय Ǔनͬध पर भी कम भार पड़ेगा तथा राÏय के Ǔनवाͧसयɉ को सृिजत

कȧ गई पǐरसàपǓतयɉ का लाभ शीē ĤाÜत हो सकेगा ।

उपयु[Èत पǐरĤेêय मɅ झारखÖड सरकार ɮवारा झारखÖड अब[न इंĥाèĚÈचर डेवलपमɅट कंपनी

(जुडको) ͧलͧमटेड को लोक Ǔनजी भागीदारȣ (PPP) मोड पर झारखÖड मɅ Bus Terminal/ISBT

पǐरयोजनाओं के ͪवकास के ͧलए Mandate Ǒदया गया है ।

उÈत Mandate को सफलतापूव[क Ǔनçपादन हेतु नीǓत Ǔनमा[ण हेतु Ǔनदेशक, राÏय शहरȣ ͪवकास

अͧभकरण, झारखÖड कȧ अÚय¢ता मɅ एक सͧमǓत का गठन ͩकया गया है, िजसके सदèय

Ǔनàनव×त हैः-

(i)

Ǔनदेशक, राÏय शहरȣ ͪवकास अͧभकरण झारखÖड

अÚय¢

(ii) Įी संजय ǒबहारȣ अàबçठ, संयुÈत सͬचव,

नगर ͪवकास एवं आवास ͪवभाग, झारखÖड

सदèय

(iii) नगर Ǔनवेशक, नगर Ǔनवेशन संगठन, झारखÖड

सदèय

(iv) पǐरयोजना Ǔनदेशक (ͪव×त), जुडको ͧलͧमटेड

सदèय सͬचव

(v) महाĤबंधक (लोक काय[), जुडको ͧलͧमटेड

सदèय

(vi) उप-सͬचव, राजèव Ǔनबंधन एवं भूͧम सुधार ͪवभाग,

झारखÖड,राँची

सदèय

उÈत सͧमǓत ɮवारा वांǓछत लोक Ǔनजी भागीदारȣ पर नीǓत Ǔनमा[ण कर Ĥèतुत ͩकया गया है,

िजसे Ǻिçटगत रखते हुए चयǓनत Ǔनजी भागीदार के ɮवारा नगर ͪवकास एवं आवास ͪवभाग के साथ

लोक Ǔनजी भागीदारȣ के आधार पर Design, Built, Finance, Operate and Transfer (DBFOT) पƨǓत के

आधार पर बस पड़ावɉ को ͪवकͧसत/पुनͪव[कास ͩकये जा सकɅ गे ।

नगर ͪवकास एवं आवास ͪवभाग के èवͧम×व भूͧम िजसके ͧलए ͬचिÛहत कȧ गई भूͧम मɅ से

वͨणिÏयक भुͧम पास[ल को Project wise ĤशासǓनक èवीकृǓत के दौरान Financial Viability

analysis के आधार पर तय ͩकये गये समय जो 30 वष[ या उससे अͬधक एवं 90 वष[ या उससे

कम के अंतग[त लȣज पर ऐसे Ǔनजी भागीदार को हèतांतǐरत ͩकया जायेगा ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

लोक Ǔनजी भागीदार के आधार पर Ǔनͧम[त ͩकये जाने वाले बस पड़ावɉ मे एकȧकृत बस टͧम[नल-

सह-åयवसाǓयक सुͪवधाओं का Ǔनमा[ण कराया जायेगा। साथ हȣ åयवसाǓयक ¢ेğ मɅ संरचनाओं को

Ǔनजी भागीदार के ɮवारा सबलȣज ͩकया जा सकेगा ।

झारखÖड राÏय मɅ Bus Terminal/ISBT के ͪवकास/पुनͪव[कास के ͧलए Ǔनजी ¢ेğ कȧ भागीदारȣ

(PPP) को बढ़ावा देने के ͧलए उÈत नीǓत मɅ नगर ͪवकास एवं आवास ͪवभाग/जुडको ɮवारा

Ǔनàनͧलͨखत दाǓय×वɉ को अपनाये जायɅगे:-

8.1. नगर ͪवकास एवं आवास ͪवभाग का दाǓय×वः

 ͪवकास के ͧलए अǓतĐमण मुÈत भूͧम/पǐरयोजना èथल कȧ उपलÞधता सूǓनिæचत् ͩकया

जायेगा ।

 आवæयक पǐरयोजना से संबंͬधत अनुमोदन एवं मंजूरȣ ĤाÜत करने मे Ǔनजी भागीदार को

सुͪवधा Ĥदान ͩकया जायेगा ।

 पǐरयोजना अवͬध के दौरान राजèव के ͪवकास/संचालन एवं रख-रखाव एवं संĒह के ͧलए

ǐरयायत Ĥदान ͩकया जायेगा ।

 Ǔनजी भागीदार को भूͧम कȧ वाͨणिÏयक Ǒहèसे मɅ अͬधकतम FAR तीन (3) तक अनुमǓत

दȣ जायेगी ।

 Ûयूनतम ͪवकास दाǓय×व (MDO) के भीतर ͪव£ापन, उपयोगक×ता[ शुãक एवं स¢म èतर से

अनुमोदन के उपरांत अÛय कर लेने का अͬधकार Ǒदया जायेगा ।

 Ǔनजी भागीदार के ɮवारा समͪप[त ͩकये गये DPR पर अनुमोदन Ǒदया जायेगा ।

 Ûयुनतम ͪवकास दाǓय×व (MDO) से संबंͬधत भुͧम पास[ल पर Ǔनजी भागीदारȣ को License

Right Ǒदया जायेगा। साथ हȣ Ûयुनतम ͪवकास दाǓय×व (MDO) से संबंͬधत भुͧम पास[ल पर

License Right का समय सीमा वाͨणिÏयक भुͧम से संबंͬधत लȣज Right के समय सीमा के

बराबर रखा गया है ।

 कुल ͬचिéनत भुͧम मɅ से Ûयुनतम ͪवकास दाǓय×व (MDO) से संबंͬधत भुͧम पास[ल को हटा

कर केवल वाͨणिÏयक सुͪवधा ͪवकͧसत करने संबंͬधत भुͧम पास[ल [Commercial Land as

defined under clause 2.4(a) of the Proposed Policy] पर Ǔनजी भागीदार को Lease Right

Ǒदया जाएगा। Ĥèताͪवत नीǓत मɅ वाͨणिÏयक सुͪवधा ͪवकͧसत करने से संबंͬधत भुͧम पास[ल

पर 30 वष[ से 90 वष[ तक के अंदर लȣज के Ĥावधान का Ĥèताव है। िजसके फलèवǾप

Project Wise ĤशासǓनक èवीकृǓत के दौरान Financial Viability Analysis के आधार पर

उÈत समय सीमा के अंदर Lease Period का Fixation ͩकया जाएगा ।

8.1.2. Ǔनजी भागीदार का दाǓय×वः

 झारखÖड सरकार ɮवारा अनुमोǑदत अवधारणा नोट के आधार पर ͪवèतृत पǐरयोजना

ĤǓतवेदन (DPR) पुरèकार पğ जारȣ करने के तारȣख से 3 महȣने के भीतर Ĥèतुत

ͩकया जायेगा ।

 समझौते के अनुसार समय सीमा के भीतर झारखÖड सरकार ɮवारा अनुमोǑदत (DPR) के

अनुसार Ûयूनतम ͪवकास दाǓय×व (MDO) को पूण[ ͩकया जायेगा ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

 वाͪष[क ǐरयायत शुãक या अपĥंट ͪĤͧमयम DPR के अनुमोदन के तारȣख से 1 महȣने के

भीतर शुǾ ͩकया जायेगा ।

 समझौते के अनुसार समय सीमा के भीतर Commercial एकȧकृत वाͨणिÏयक सुͪवधा का

ͪवकास ͩकया जायेगा ।

 Ǔनजी भागीदार ɮवारा MDO के संचालन एवं Ĥबंधन ͩकया जाएगा। डÈव् के संचालन

एवं Ĥबंधन का दाǓय×व का समय सीमा वाͨणिÏयक भूͧम के लȣज के समय सीमा के

बराबर होगी ।

 Bus Terminal/ISBT के पुन[ͪवकास कȧ िèथǓत मɅ जǾरत पड़ने पर मौजुदा लोगɉ ͩक

पुन[वास एवं सामािजक बुǓनयादȣ ढाँचा को ͪवकास Ǔनजी भागीदार के ɮवारा ͩकया जाएगा।

8.2. संभाͪवत Bidding Parameter इस Ĥकार होगीः

8.2.1. Ǔनजी भागीदार ɮवारा अͬĒम प͠ा ͪĤͧमयम (Upfront Lease Premium) के ͧलए

Ûयूनतम आरͯ¢त मूãय (Minimum Reserve Price) के उपर Bid करɅगे। Ǔनजी

भागीदार ɮवारा अͬĒम प͠ा ͪĤͧमयम Ǔनमा[ण अवͬध के दौरान 5 बराबर ͩकèतɉ मɅ

भुगतान ͩकये जायɅगे ।

अथवा

8.2.2. Project wise Financial Viability Analysis के आधार पर तय ͩकये गये समय जो

30 वष[ या उससे अͬधक एवं 90 वष[ या उससे कम के अंतग[त देय उÍचतम वाͪष[क

ͪĤͧमयम का शुƨ व×त[मान मूãय (NPV) Ûयूनतम आरͯ¢त मूãय से कम नहȣ होगी।

अथवा

8.2.3. अͬĒम प͠ा ͪĤͧमयम और वाͪष[क ǐरयायत शुãक का संयोजन Parameter ͩकया

जायेगा। इस ͪवकãप मे 8.2.1 का 20 ĤǓतशत तय Parameter होगा एवं 8.2.2 का

80 ĤǓतशत Bidding Parameter होगा ।

8.2.4. Ûयूनतम आरͯ¢त मूãय (Minimum Reserve Price) अथा[त् वाͨणिÏयक सुͪवधा

Develop करने से संबंͬधत भूͧम पास[ल के सक[ ल दर का 1.52 गुणा मɅ से MDO का

शुãक घटाते हुए Fix ͩकया गया है ।

मौजूदा संकãप सं॰ जुडको ͧलͧमटेड/पी॰पी॰पी॰/बस èटैÖड/1038/2016-5049 राँची, Ǒदनांक

07.08.2017 जो ͩक झारखÖड राÏय के ͪवͧभÛन शहरȣ Ǔनकायɉ मɅ लोक Ǔनजी भागदारȣ के आधार

पर बस पड़ावɉ को ͪवकͧसत ͩकए जाने से संबंͬधत है, पर Ûयूनतम आरͯ¢त मूãय (Minimum

Reserve Price) कुल ͬचिÛहत भूͧम के सक[ ल दर का 1.52 गुणा है ।

उपयु[Èत मौजूदा संकãप मɅ राÏय के ͪवͧभÛन बस पड़ावɉ के ͪवकͧसत हेतु ͬचिÛहत भूͧम

कȧ व×त[मान बाजार दर कȧ Ûयूनतम 7.5 ĤǓतशत दर अथवा उससे अͬधक दर पर वाͪष[क ͪĤͧमयम

भुगतान करने हेतु इÍछुक Ǔनजी भागीदार के ɮवारा Ǔनͪवदा समͪप[त करते हुए उƨृत ͩकया जाना है,

िजसमɅ ĤǓत वष[ 10 ĤǓतशत कȧ चĐवृͪƨ दर के आधार पर भुगतान करना होगा ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

इस Ĥकार 30 वष[ के ͧलए देय उÍचतम वाͪष[क ͪĤͧमयम का शुƨ व×त[मान मूãय (NPV)

Ûयूनतम आरͯ¢त मूãय अथा[त् कुल ͬचिÛहत भूͧम के सक[ ल दर का 1.52 गुणा से कम नहȣ होगी ।

10. मौजूदा संकãप एवं Ĥèताͪवत नीǓत का तुलना×मक मुÉय ǒबÛदुः-

10.1. मौजूदा संकãप मɅ Ûयूनतम आरͯ¢त मूãय (Minimum Reserve Price) के Ǿप मɅ कुल

ͬचिÛहत भूͧम के सक[ ल दर का 1.52 गुणा Ǔनिæचत ͩकया गया है।

जबͩक Ĥèताͪवत नीǓत मɅ Ûयूनतम आरͯ¢त मूãय के Ǿप मɅ कुल ͬचिÛहत भूͧम

मɅ से Ûयूनतम ͪवकास दाǓय×व (MDO) से संबंͬधत भूͧम पास[ल को हटाकर केवल

वाͨणिÏयक सुͪवधा Develop करने से संबंͬधत भूͧम पास[ल के सक[ ल दर का 1.52 गुणा

मɅ से MDO का शुãक घटाते हुए Ǔनिæचत ͩकया गया है ।

10.2. मौजूदा संकãप मɅ ͪव×तीय Bid Parameter वाͪष[क ͪĤͧमयम (Annual Premium) के Ǿप मɅ

रखी गई है। 30 वष[ के ͧलए देय उÍचतम वाͪष[क ͪĤͧमयम का शुƨ व×त[मान मूãय

(NPV) Ûयूनतम आरͯ¢त मूãय अथा[त् कुल ͬचिÛहत भूͧम के सक[ ल दर का 1.52 गुणा से

कम नहȣ होगी ।

जबͩक Ĥèताͪवत PPP Policy मɅ ͪवकãप के Ǿप मɅ अͬĒम प͠ा ͪĤͧमयम

(Upfront Payment) अथवा अͬĒम प͠ा ͪĤͧमयम और वाͪष[क ͪĤͧमयम का संयोजन के Ǿप

मɅ भी Quote ͩकये जाने का Ĥावधान इस Ĥकार रखी गई हैः-

Ǔनजी भागीदार ɮवारा अͬĒम प͠ा ͪĤͧमयम (Upfront Lease Premium) के ͧलए

Ûयूनतम आरͯ¢त मूãय (Minimum Reserve Price) के उपर Bid करɅगे। Ǔनजी भागीदार

ɮवारा अͬĒम प͠ा ͪĤͧमयम Ǔनमा[ण अवͬध के दौरान 5 बराबर ͩकèतɉ मɅ भुगतान

ͩकये जायɅगे ।

अथवा

Project wise Financial Viability Analysis के आधार पर तय ͩकये गये समय

जो 30 वष[ या उससे अͬधक एवं 90 वष[ या उससे कम के अंतग[त देय उÍचतम वाͪष[क

ͪĤͧमयम का शुƨ व×त[मान मूãय (NPV) Ûयूनतम आरͯ¢त मूãय से कम नहȣ होगी ।

अथवा

अͬĒम प͠ा ͪĤͧमयम और वाͪष[क ǐरयायत शुãक का संयोजन Quote ͩकया

जायेगा। इस Ǔतसरे ͪवकãप मे पहला ͪवकãप का 20 ĤǓतशत तय Parameter होगा एवं

दुसरे ͪवकãप का 80 ĤǓतशत Bidding Parameter होगा ।

10.3. मौजूदा संकãप मɅ कुल ͬचिÛहत भूͧम पर 30 वष[ के ͧलए लȣज का Ĥावधान है, िजसे

Performance Evaluation के आधार पर पुनः 30+30 वष[ के ͧलए ͪवèताǐरत ͩकया जा

सकता है ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

जबͩक Ĥèताͪवत नीǓत मɅ वाͨणिÏयक सुͪवधा Develop करने से संबंͬधत भूͧम

पास[ल पर 30 वष[ से 90 वष[ तक के अंदर लȣज के Ĥावधान का Ĥèताव है। िजसके

फलèवǾप Project wise ĤशासǓनक èवीकृǓत के दौरान Financial Viability analysis के

आधार पर उÈत सीमा के अंदर लȣज Period का Fixation ͩकया जा सकेगा। साथ हȣ

Ûयूनतम ͪवकास दाǓय×व (MDO) से संबͬधत भूͧम पास[ल पर License Right का समय

सीमा वाͨणिÏयक भूͧम से संबंͬधत लȣज के समय सीमा के बराबर रखा गया है ।

10.4. मौजूदा संकãप मɅ Financial Bid को ͬचिÛहत भूͧम के व×त[मान बाजार दर के साथ Link

कराया गया है ।

जबͩक Ĥèताͪवत नीǓत मɅ Financial Bid को पǐरयोजना के åयवहाय[ता

(Viability) के साथ Link कराया गया है।

11.

मौजूदा संकãप मɅ उÈत खाͧमयɉ के कारण Ĥकाͧशत ͩकये गये Ǔनͪवदा मɅ कोई भी Ǔनजी भागीदार

के ɮवारा भाग नहȣ ͧलया गया एवं साथ हȣ 10 जून 2019 मɅ ͩकये गये Investors Meets मɅ

उपयु[Èत खाͧमयɉ को उƨृत ͩकया गया ।

12.

Ĥèताͪवत नीǓत मɅ उपयु[Èत बातɉ को Úयान मɅ रखते हुए Financial Bid को Project Revenue के

साथ Link कराया गया है। Ĥèताͪवत नीǓत (PPP Policy) इस संलेख के साथ संलÊन कȧ गई है ।

13.

Ĥèताͪवत नीǓत मɅ VGF का कोई Ĥावधान नहȣं ͩकया गया है। अथा[त Ĥèताͪवत योजना के ͧलए

सरकार पर कोई ͪव×तीय भार नहȣं पडे

़

गा

।

14.

उÈत के पǐरĤेêय मɅ मौजूदा संकãप संÉयाः जुडको ͧलͧमटेड/पी॰पी॰पी॰/बस èटैÖड/ 1038/2016-

5049 राँची, Ǒदनांक 07.08.2017 को लोप (Annual) करते हुए कंͫडका-11 मɅ संलÊन ͩकये गये

Ĥèताͪवत नीǓत (PPP Policy) पर Ǒदनांक 23.12.2020 को सàपÛन मंǒğपǐरषɮ कȧ बैठक मɅ मद

संÉया-29 के Ǿप मɅ èवीकृǓत Ĥदान कȧ गई है ।

झारखÖड राÏयपाल के आदेश से,

ͪवनय कुमार चौबे,

सरकार के सͬचव ।

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

S No

Table of Contents

Page No

Public Private Partnership Framework

1.1

Background

1.2

Introduction to Public Private Partnership

1.3

Need for PPPs

1.4

Various Implementation Structures under PPP

3-4

1.5

Contract Period for PPP projects

4-5

1.6

Enabling Commercial Development under Project

Land Uses

1.7

Stakeholders in a PPP transaction

5-6

Public

Private

Partnership

for

Bus

Terminal/ISBT Projects in Jharkhand

2.1

Project Identification

2.2

Activities post identification

2.3

Project Feasibility

6-7

2.4

Pre-Procurement Activities

7-8

2.5

Procurement Process

2.6

Post Award Contract Management

Proposed Public Private Partnership structure

for

Bus

Terminal/ISBT

Projects

across

Jharkhand

3.A

Obligation of Urban Development & Housing Dept.

9-10

3.B

Obligation of Developer

3.C

Implementation Framework

10-11

3.D

Probable Bidding Parameter

11-12

Conclusion

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

1. Public Private Partnership Framework

1.1 Background:

Urban Development and Housing Department, Government of Jharkhand (GOJ) is committed to

improving the level and the quality of economic and social Urban Infrastructure services across the

State. In pursuance of this goal, the Government envisages a substantive role for Public Private

Partnership (PPPs) as a means for harnessing private sector investment and operational efficiencies in

the provision of public assets and services.

UD&HD, GOJ has mandated the Jharkhand Urban Infrastructure Development Company (JUIDCO)

Limited to undertake development of Bus Terminal/ISBT projects across Jharkhand on Public Private

Partnership (PPP) mode.

However, implementation through PPPs has had its set of challenges due to complicated financing

structures, delays in land acquisition and long gestation period of infrastructure projects. Therefore,

there is a need to adopt a structured approach while conceptualizing, structuring and implementing

projects with private sector participation. A streamlined and well laid out approach would go a long way

in addressing some of the challenges and result in successful projects that deliver more value to the

public.

This PPP Guide would enable the officials concerned with developing projects under PPP to provide an

understanding on the various steps involved with regard to the PPP project lifecycle.

This PPP guide is prepared based on the best practices adopted and prescribed in “PPP Guide

for Practitioners”, published by PPP Cell, Department of Economic Affairs, Government of

India.

1.2 Introduction to Public Private Partnership

PPPs are an arrangement between the public entity and the private partner for development of

infrastructure or delivery of services. Under conventional construction contracts, the private sector bears

only the design and construction risk whereas under PPPs, they are likely to bear other risks pertaining

to financing, demand and operations, depending upon the risk sharing mechanism between the public

entity and the private partner.

PPPs primarily focus on service delivery with measurable output parameters (the performance of the

private sector is monitored against a set of performance indicators) as opposed to the conventional

method of EPC (Engineering-Procurement-Construction) contracts which only focus on creation of

assets.

1.3 Need for PPPs

There are usually two fundamental drivers for PPPs. Firstly, PPPs enable the public sector to harness the

expertise and efficiencies that the private sector can bring to the delivery of certain facilities and

services traditionally procured and delivered by the public sector.

Secondly, a PPP is structured so that the borrowing of finances is incurred by the private sector

implementing the project and therefore, from the public sector's perspective, a PPP is an "off-balance

sheet" method of financing the delivery of new or refurbished public sector assets.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

1.4 Various Implementation Structures under PPP

PPP arrangements are characterized by the identification of risks and their allocation among the parties

to the arrangement. On the basis of the risk allocation, the various PPP models are designed. Many

variants of PPP models are implemented across different projects essentially differentiated on the basis

of the risk allocation framework employed within these projects. Given below are the basic PPP models

that are prevalent in project development.

i. Management contracts

The key feature of management contracts is that the public entity engages a private partner to

manage a range of activities for a relatively short duration (3 – 5 years). Management contracts are

task specific and tend to focus on inputs rather than outputs. In such contracts, the ownership of

assets and investment typically remain with the public entity, although some rehabilitation

responsibilities can be transferred to the private partner. Variants include:

a. Basic management-for-fee contract. In this format, all volume and future value risk is

retained by the public entity.

b. Management contract with performance incentives related to cost and quality. Some risk,

such as volume risk, is retained by the contractor.

c. Management and finance contract with some rehabilitation and expansion. The contractor

takes the financial and management risks for a volume incentive.

ii. Lease contracts

In a lease contract, the asset is leased, by the public entity to the private partner. Lease contracts are

usually of medium term length, and may involve capital investment by the private partner. Such

arrangements are usually observed in water supply contracts where the collection risk is transferred

to the private partner. Usually, the private partner in such cases would require an assurance in terms

of tariff levels, increases over term of lease and compensation and review mechanism in case the

tariff levels do not meet the estimates. Variants include Build –Lease-Transfer (BLT), BOLT.

iii. Concession Contracts

Concession means a bundle of rights which may be transferred from the Government entity to the

private partner as part of the PPP arrangement. In a concession contract (brown field) the public

sector grants the private partner the right to manage and operate existing assets and responsibility

for making new investment (extensions or rehabilitation). However, the ownership of assets

typically remains with the Government. The variants under this contract include the following:

a. Build-Operate-Transfer (BOT) contracts and its variants

In this type of arrangement, the private sector is responsible for building, operating and

transferring the ownership of the project to the Government. BOT contracts involve a great

level of private sector participation across a set of different functions, and often cover a longer

duration (also known as “Concession Period”). A number of BOT variants are possible

depending on the allocation of roles and risk.

b. Design-Build-Finance-Operate-Transfer (DBFOT)

In this type of arrangement the private sector designs, finances and constructs a new facility

and operates the facility for the agreed term. The facility is transferred back to the public sector

at the end of the term.

c. Build-Own-Operate-Transfer (BOOT):

In this type of arrangement, the private entity finances, designs, builds and operates a facility

(may include collection/ charge of user fees) for a specified period, after which the ownership

is transferred back to the public sector.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

Based on the objectives of the project, required expertise and financial investment from the private

sector, the below matrix sets out the PPP option selection:

PPP Option Selection Matrix

Options

Objectives

Technical

expertise

Managing

Expertise

Operating

Efficiency

Management Contract

Yes

Some

Lease

Yes

Some

Concession Contract

Yes

Some

1.5 Contract Period for PPP projects:

The contract period for the PPP projects is determined based on the viability of the project. In case

of large infrastructure projects such as roads the concession period is given for 30 years. However,

recently for the airport projects, concession period is provided up to 50 years and bus

terminals/ISBT for 90 years.

Depending on the PPP option selected, ownership, responsibilities of public / private and duration

of PPP would be reflected as below:

Distribution of responsibilities& contract period in PPP

Options

Asset

Ownership

Operation and

Maintenance

Capital

Investment

Commercial

Risk

Duration

(years)

Management

Contract

Public

Private

Public

3 – 5

Lease

Public

Private

Public

Shared

8 – 15

Concession

Contract

Public

Private

25 – 30

and above

Source: Knowledge Series, Advanced Course, Department of Economic Affairs, Ministry of Finance, Government of

India

1.6 Enabling Commercial Development under Project Land Uses

Generally public land use restricts exclusive commercial development activities. This was the case

for the projects being developed under the state government. However, with the advent of PPP and

to attract the private sector participation for the development of Urban Infrastructure, it was

assessed that development of only public facilities limits the viability of the project. Therefore

various state governments have enabled the commercial development under the existing

Government land use through amendments. For e.g. Karnataka has made a notification by allowing

up to 45% of the FAR in the traffic and transportation land use from the existing limit of 5% for the

commercial facilities. The notification is attached as an annexure. In case of Baroda Bus station &

Gita Mandir Bus station in Gujarat, the permissible commercial facilities in the transport land use is

up to 50% of the total built up area.

1.7 Stakeholders in a PPP transaction

PPP’s transactions involve a diverse range of stakeholders in the process. In most cases it is witnessed

that stakeholders provide valuable input to the design and practicality of a PPP project. An indicative

table of the key stakeholders and their roles is set out in the below table:

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

Stakeholders

Roles & Responsibilities

Government

Establish and prioritize goals and objectives of PPP and communicate

these to the public

b. Approve recommended PPP option

c. Provide institutional, regulatory and legal frameworks

Private sector

Provide feedback on attractiveness of various PPP options

b. Follow rules and procedures of competitive bidding process

c. Provide project specific expertise

Transaction Advisors /

Technical consultants

Aid / help in structuring and working out a viable PPP project.

b. TAs who have experience in developing PPP contracts can help to

highlight the best practices to adopt or the pitfalls to avoid when

preparing for a PPP deal.

Financial Institutions

Extend financial support to the private partner in terms of loans

Project Monitoring

consultant(PMC)

Supervision and monitoring quality of the project (different from TA)

Public

a. Communicate ability and willingness to pay for service

b. Express priorities for quality and level of service

c. Identify existing strengths and weaknesses in service

2. Public Private Partnership for Bus Terminal/ISBT Projects in Jharkhand:

This section provides the indicative steps for the development of Bus Terminal/ISBT Projects under

Public Private Partnership.

2.1 Project Identification:

The locations for the development of Bus Terminal/ISBT Projects in the state has been identified.

2.2 Activities post identification:

There are certain activities that need to be carried out post identification of the project to ensure smooth

development at a later stage. These activities include the following:

a. Constitution of a Project Management Cell/ Unit

b. Stakeholder consultation

c. Hiring of Transaction Advisors/ Consultants/ Experts, etc.

d. Obtaining preliminary approvals

It is at this stage that the public entity may explore the availability of funds/ schemes that facilitate the

carrying out of certain activities such as the preparation of concept plans, feasibility studies, detailed

project reports (DPR), etc.

2.3 Project Feasibility

The project feasibility stage confirms the practicability of a project in terms of technical, financial, legal

and economic aspects, whether or not a project is envisaged for development through the PPP route.

The project feasibility would be prepared by the Transaction Advisor/Consultant.

Technical Feasibility

Technical feasibility studies are carried out primarily to analyses the possible design/engineering options

that could be applied and adopted for development of the project. The technical studies throw light on

all the approvals and clearances that have to be acquired for project development and implementation. It

also lists the utilities/ancillary infrastructure that may be required to be developed and the cost estimates

for undertaking the project.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

The approvals and clearances that would require for the development of projects are;

i. Land related approvals – this shows whether land belongs to the Authority and what is the

existing land use pattern allowed in this subject land under the master plan. If not, the land has to

be notified for the intended purpose by changing the classification accordingly. In addition,

necessary approvals should be obtained by the Authority in order to transfer the land to the

Private as concession for longer period.

ii. Building by-laws – it is necessary to understand the existing building by-laws for developing the

urban infrastructure facilities in the state/municipality.

Financial feasibility assessment

It is a critical part in the project preparation stage. It provides information about the costs, expenses and

sources of revenues, and gives an indication whether the project is self-sustaining or requires additional

financial support in the form of grant to make it viable. In other words, financial feasibility helps

determine whether the project will

make sufficient revenues to offset all the costs incurred as well as allow for a reasonable return on

investment for the private partner. Financial feasibility forms the basis for determining an appropriate

project structure and eventually informs the preparation of bidding documents.

It is widely understood that development of project on a standalone basis would not be viable.

Therefore, the Developer should be allowed to generate revenue through other possible sources within

the existing legal framework. Some of the other indicative revenue sources are below.

a. The developer shall be allowed for additional FAR subject to maximum FAR three (3) for

development of commercial facilities.

b. Allowing parking facilities within the MDO.

c. Allowing advertisements rights within the MDO.

d. Allowing the developer to collect user fee.

It is also at this stage that various project structure options as mentioned above for development of the

project emerge and the merits for development of the project through an appropriate PPP framework are

examined. The financial viability of the project under PPP is usually evaluated through financial

indicators such as equity IRR, Project IRR and equity & Project NPV.

Based on the viability of the project determined during the feasibility stage, the project structure is

finalized. However, based on the viability of the project the concession period shall be considered.

2.4 Pre-Procurement Activities

Pre-procurement activities would include all the activities that are required to be put in place by the

Authority prior to commencement of the bid process for procurement of private sector participation for

the project.

An indicative list of these pre-procurement activities includes:

a. Concept note- Concept note on the Project to be submitted by the Consultant. Concept note will

explicitly mention Project wise, total land parcel available, out of that the land parcel to be

utilized under MDO and the remaining land parcel to be utilized for commercial development

by PPP Partner which will vary Project to Project, known as commercial land. Approval is to

be taken on this concept note from Government.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

b. Land Acquisition, fixing of Right of Way and shifting of utilities - process towards land

acquisition, access to right of way, shifting of utilities, etc.

c. Administrative approvals – permissions from Government, Cabinet approvals, etc.

d. Clearances & Permits – from statutory and regulatory authorities

e. Inter-departmental coordination

2.5 Procurement Process:

Once the basic pre-requisites to initiate the procurement process have been fulfilled in terms of

obtaining in-principle approvals and carrying out the necessary feasibility studies, the next step would

be to decide on the procurement process to be adopted. In this stage, it is critical to adopt an open, fair,

transparent, competitive approach towards bidding.

A single stage two envelop bidding process shall be adopted for selection of private partner for the

development of Bus Terminal/ISBT Projects in different locations of Jharkhand. The following bidding

documents would need to be prepared for the procurement process:

Request for Qualification cum Proposal (RFQ cum RFP)

b. Draft Concession Agreement (DCA)

Evaluation of proposals submitted would be carried out in the following steps:

Step I: First step would involve opening of the Technical Proposal and a test of responsiveness would

be carried out as per the provisions contained in the RFP. Those Proposals found to be responsive would

be considered for evaluation in the second step.

Step II: In the Second step, the evaluation of the information furnished by the Bidders relating to their

eligible experience comprising Technical Capacity and Financial Capacity (“Eligibility Criteria”)

would be undertaken as per RFP. Bidders who meet the Eligibility Criteria would be considered as

qualified bidders (the “Qualified Bidders”) for the next stage of evaluation.

Step III: In the third step, the Price Proposal of the Qualified Bidders will be opened for evaluation and

the Selected Bidder shall be declared successful for development of Bus Terminal/ISBT or

re-development of Market Complex.

a. Bid Parameter for selection of Private Developer:

In case of the financial bids for the development of projects that are financially viable, the Authority

shall obtain the highest Annual Concession Fee or Upfront Concession Fee or a combination of both as

a bid parameter for consideration of transfer of assets. The Annual Concession Fee to be paid by the

Private Developer shall be escalated @5% per annum.

2.6 Post Award Contract Management

The success of a project developed through a PPP framework is determined mostly when the project is

executed and its commercial operations are underway. Post award period commences from the date of

issue of Letter of Award to the Successful Bidder and ends after the expiry of Project Agreement/

Concession Agreement.

The Post-award Contract Management involves four key stages which are mentioned below:

Development Stage: includes the process leading up to contract execution, starting from the

date of Letter of Award up till the date of commencement of construction consisting of all

pre-construction project activities like land acquisition, meeting financial closure, etc.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

b. Construction Stage: involves the period commencing from the date of commencement of

construction through the commissioning process to the completion of construction as specified in

the terms and conditions of concession agreement.

Operations & Maintenance Stage: this stage extends for the longest portion of the PPP project

development lifecycle. It covers the provision of service by the private partner and the use of

such services during the concession period.

Handover Stage: includes the period leading up to and after contract expiry or termination. The

final task in managing a PPP contract is to manage the transition of assets and operations at the

end of the concession period. The approach to this transition should be clearly defined in the

Concession Agreement. This typically includes defining how quality of the assets will be defined

and assessed, whether a payment will be made on asset handover, and how the amount of any

payment will be determined. It also involves determining future asset and service requirements;

determining future service delivery strategy; reviewing exit provisions; and managing the

transfer to the new arrangements.

3. Proposed Public Private Partnership structure for Bus Terminal/ISBT Projects across

Jharkhand.

The following are the key proposals that could be adopted by Urban Development and Housing

Department/JUIDCO, GOJ in order to promote Private Sector Participation for the development of

Bus Terminal/ISBT Projects in the State of Jharkhand.

A. Obligation of Urban Development and Housing Department:-

a. Granting Concession for developing/operating & maintaining and collection of revenues during

the project period

b. Ensuring availability of encumbrance free land/project site for development

c. Facilitating the developer in obtaining necessary project related approvals and clearances

d. Approval on DPR as submitted by the Developer.

e. License right will be given on the land parcel to be proposed for Minimum Development

Obligation (MDO). Same time line will be given under license right for MDO as proposed under

lease right for commercial development.

f. Lease right will be given on remaining land parcel i.e. Commercial Land as defined under clause

2.4 (a) of this draft policy, for commercial development by PPP partner. During project wise

administrative approval, the lease period for Commercial land will be decided based on financial

viability analysis. However, lease period as such shall not be less than 30 years and more than 90

years.

g. The developer shall be allowed maximum FAR up to three (3) in commercial land for

commercial development.

h. Allowing advertisement rights within the MDO.

i. Allowing the developer to collect user fee for the facilities provided within the MDO.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

B. Obligation of Developer:-

Minimum Development Obligation (MDO):



Bus Terminal/ISBT Projects

 Development and completion of Bus Terminal/ISBT facility as per the specification

approved by Government of Jharkhand within the time frame as per the Agreement



Re-development of existing Bus Terminal/ISBT

 Rehabilitation of the existing tenants if required

 Development of social infrastructure



Other Obligations of developer:

 Preparation and submission of detailed project report (DPR) based on the concept note on

the Project as approved by GoJ.

 Submission of DPR within three (3) months from the date of issuance of letter of award.

 Development of Integrated Commercial facility

 All approval, permits & consents from statutory authorities with suitable assistance from

GoJ

 Payment of all taxes, levies & duties

 Construction and handing over of MDO as per the agreed terms and specifications

 All financing towards construction, operation & maintenance

 Annual concession fee or Upfront Premium or combination of both within one (1) month

from the date of approval of DPR.

Implementation Framework:-

a. GoJ intends to develop the facilities on Design, build, finance, operate & transfer (DBFOT)

mode.

b. Selected bidder will form a SPC to implementation the project as wholly owned subsidiary

of it.

GOJ will enter into development agreement with the SPC.

c. During the development phase, Developer will only have License rights on land for

development/construction of the Project.

d. Developer is entitled to have development rights in the MDO land and Concession/lease

rights on the commercial land only after the completion of the construction of MDO

e. Developer can sublease the commercial area to end users in co-terminus with the project

period

f. Project construction would be monitored through Project Management Consultancy

g. The developer shall within 30 days from the date of handover of the land, shall open and

establish an escrow account with a nationalized bank and all funds constituting the financing

packages for meeting the construction cost of the commercial complex including money

received towards advance and installments from prospective end user of the Developer’s

allocation of space in the commercial complex during the construction period shall be

credited to this account and shall maintain the escrow account in accordance with the

provisions of Real Estate (Regulation & Development) Act, 2017 and Jharkhand Real Estate

(Regulation & Development) Rules, 2017.

झारखÖडगजट(असाधारण) सोमवार, 6 फरवरȣ, 2023

Probable Bidding Parameters:

a) Upfront lease premium payable by the Developer to the Government subject to minimum

reserve price

 Minimum Reserve Price = 1.52 times of Circle rate of the commercial land – (minus) Cost of

Minimum Development Obligation (MDO).

 Upfront premium is to be paid in 5 equal installments during construction period

b) Annual Concession Fee

 The Net Present Value (NPV) of highest annual premium payable for the lease period to be

decided based on Project wise financial viability analysis, subject to minimum reserve price.

However, the lease period as decided above shall not be less than 30 years and more than 90

years.

 Minimum Reserve Price = 1.52 times of Circle rate of the commercial land – (minus) Cost of

Minimum Development Obligation (MDO).

c) Combination of Upfront lease premium and Annual Concession Fee

 20% of ‘(a)’ will be the fixed parameter and 80% of ‘(b)’ will be variable/bidding parameter.

4. Conclusion:

Under the prevailing Revenue Circular vide 5049 dated 09/08/2017, the financial bid parameter for

projects that are financially viable under the Public Private Partnership, the bidder shall not quote less

than the Minimum Reserve Price equal to 7.5% of the Market Price of land with escalation @ 10%

compound interest per annum during the concession period payable to the Authority.

In the above case, the financial bid is linked to the market price of the land rather than the viability of

the project.

In this draft policy effort has been taken to link the financial bid with the viability of the project rather

than to the market price of land. Excess of 1.52 times of circle rate of the land parcel to be developed for

Commercial purpose over cost of minimum development obligation (MDO) will be taken into

consideration in determining the minimum reserve price.

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