1

The Critical Success Factors (CFSs) for Improving Public-Private Partnerships Performance in

the United Arab Emirates

Review Paper

Name

Institution
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Abstract

Over the last decade, the United Arab Emirates (UAE) has offered the biggest market for public-

private partnerships in the Gulf region. These projects are increasingly being used in the massive

development of infrastructure within these Arab nations. Despite this, the country still has little

understanding of the success factors of implementing such projects. Therefore, this discourse

undertakes an in-depth analysis involving a literature review to determine the critical success

factors for such projects in the UAE. The paper reveals four essential components that can make

the UAE succeed while implementing these projects. They include the availability of proper

regulatory frameworks, managerial and operational effectiveness, political stability and

conduciveness, and financial and market appropriateness. These findings are crucial and should

be considered by both public and private stakeholders when developing new PPP projects in the

country to enhance their success rates. The discourse also focuses on research gaps by

mentioning how this study is limited to developing countries and only in the industrial and

construction sectors and not the service industries.

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Table of Contents

1.0. Introduction
………………………………………………………………………………….4
2.0. Literature Review
……………………………………………………………………………4
2.1. Recent Developments on PPP Projects in the UAE
…………………………………4
2.2. Critical Success Factors for PPPs in the UAE
……………………………………….4
2.3. Political, Legal, Economic, and Managerial Factors as a Means of Improving
PPP Governance Approaches
…………………………………………………………….10
2.3.1. Political Factors …………………………………………………………10
2.3.2. Legal Factors …………………………………………………………….11
2.3.3. Economic Factors ………………………………………………………..12
2.3.4. Managerial and Operational Factors …………………………………….14
2.4. Future of PPPs
……………………………………………………………………...17
2.5. Research Gap
……………………………………………………………………….18
3.0. Conclusion
………………………………………………………………………………….19
References......................................................................................................................................21
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1.0. Introduction

In the United Arab Emirates (UAE), public-private partnerships (PPPs) have become central

to its government regarding infrastructural development. Within this nation, the goal is to focus

on growing the private sector and increasing employment opportunities nationally. The PPP

model has proven vital in enabling the development of strategic projects and services cost-

effectively and quality assuredly. Due to the country's commitment to dealing with climate

change, the focus is on renewable energy in this sector. The government has also focused more

on social infrastructure and how this will enable it to attain its development goals. For the last

few decades or so, the UAE has shown positive signs of PPP projects. The Emirati government

recently stated that it planned to undertake more than thirty PPP projects in 2021. The projects

focus on several sectors, including infrastructure, transportation, and urban development (Al-

Ahmar et al., 2022). However, despite the level of progress, the UAE has made on this front, it is

worth mentioning that the country, just like many others is yet to explore all critical success

factors on this front. This discourse aims to undertake a literature review on PPPs, focusing on

the research gap on this subject in the context of the UAE.

2.0. Literature Review

2.1. Recent Developments on PPP Projects in UAE

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Over the last decades, the UAE has evolved into the largest market for public-private

partnerships, especially among Gulf Cooperation Council (GCC) nations. Currently, PPPs are

increasingly used to enable the rapid infrastructural development witnessed in the UAE. The

problem is that these projects usually demand significant resources and time, elements that are

not usually available all the time. To make these issues less problematic, the UAE recently

issued new procurement regulations to eliminate problems with PPPs. The country believes that

the formalisation of the PPP procurement framework is crucial after the government announced

in 2020 that it would procure over £2.1 billion worth of infrastructure (Kaur, 2020). The

government hopes to invest this significant amount in various projects across several sectors,

including education, transport, and municipal works.

The new procurement regulation is considered vital because it is believed that this will

bring significant changes to PPP projects in the UAE. It will offer a robust legislative structure to

provide long-term private sector in procuring and delivering infrastructure projects. Outside the

power and water sector governed by sector laws, the country lacked clarity regarding the

procurement rules and procedures applying to PPPs (Carbonara, Costantino, & Pellegrino, 2016).

The PPP law and regulation offer consistency and clarity that matches the international best

practice on this front. Most importantly, it clarifies that projects approved under this new PPP

regulation are not influenced by the current procurement law that regulates the financial system

of this government. The new rules regarding PPPs and the overall framework indicate the

political commitment of this government to PPPs. Investors have welcomed the new law because

of PPP tenders' lengthiness and costly nature. Furthermore, these investors could always deploy

their capital to other projects in promising areas around the globe (Pu, Xu, Chen, & Marques,
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2020). A solid and robust legislative framework offers the confidence needed by private sector

individuals to invest in the UAE.

By formalising this framework, the UAE can easily focus on issuing tenders, thereby

delivering on significant projects. According to the Abu Dhabi government, a clear pipeline of

projects is expected to flow, a process that started in late 2020 (Kaur, 2020). The government

believes that such robust pipelines will prove critical in attracting competing capital globally to

invest in the nation.

One of the critical ways of driving increased investment in PPP infrastructure projects is

to enhance infrastructure project preparation. It is considered the primary pillar of the PPP

strategy because it is a known fact that fully prepared projects before launch can have a better

chance of success. Furthermore, they can attract investments known to improve competition,

thereby offering governments and the private sector a balanced and fair risk allocation

(Vinogradov, Shadrina, & Kokareva, 2014). Outside the two main sectors, including energy and

utilities, PPPs are still not that common, and prominent investors, such as governments,

developers, and financial agencies, are still going through a learning curve. Therefore, it is vital

to drive open dialogue, training, and discussions involving governments, the private sector, and

lending institutions (Almarri & Abuhijleh, 2017). Such a corporation is needed to make sure that

the market is set in a way that ensures that these projects are structured correctly.

Foreign contractors must also start thinking of means of reaching out and collaborating

with local partners to obtain local knowledge to complement their foreign technical expertise

(Pu, Xu, Chen, & Marques, 2020). Such teaming up will allow the UAE government to take

advantage of such pipelines whenever they are announced. Historically, the UAE needs a
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minimum level of local participation in firms set up within its border. In 2018, UAE passed the

foreign direct investment (FDI) law by setting a framework that permits up to 100% foreign

sectors in particular sectors (Kaur, 2020). Each Emirate will determine the sectors that allow up

to 100% of foreign ownership. Currently, no clarity exists regarding how FDI law will apply to

PPPs. To make its PPP projects more attractive, the UAE government recently announced that it

would begin issuing FDI licenses to investors and allowing total foreign ownership to investors

with a capital of AED 2 million and above to promote sustainable economic development (Kaur,

2020). The government recently issued an FDI license which will drive economic activities in

critical sectors such as agriculture, industry, and services. The new permit is a new strategy

focused on pulling investors to this nation, particularly in the non-oil sector, because this will

significantly complement its PPP framework.

2.2. Critical Success Factors for PPP in the UAE

The procurement law is one of the recent developments that the UAE has made to

advance its PPP projects, but this alone is not enough. Therefore, it is vital to consider the factors

critical to the success of these projects in the UAE and worldwide. The use of traditional

procurement methods was cited as one of the issues that affected the success of these projects in

the UAE. The review of previous research on PPPs has shown what scholars need to ensure that

stakeholders realise their objectives in these large projects (Al-Saadi & Abdou, 2016). The

context influences critical success factors (CSFs) in these projects to enable specific countries to

know how to realise their objectives. These essential success factors are based on extensive

research of large projects, including stadiums, roads, hydroelectric power plants and similar

projects (Jefferies, Gameson, & Rowlinson, 2002). Such a list is vital because a CSF in one

country might not necessarily work in a different country.

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Scholars have also focused on sectors and organisations while researching these projects.

For example, in the UK, discounted knowledge transfer is not considered a critical proponent of

such tasks. In the UAE, this factor is significant where the private partners are usually

international firms who must engage in knowledge transfer to the public sector to localise future

endeavours (Dulaimi, Alhashemi, Ling, & Kumaraswamy, 2010). Additionally, research on PPP

has faced criticism for focusing mainly on the "value for money" and, to a greater extent ignoring

the broader and longer-term impacts PPP has on public policies. According to Flinders (2005),

the adoption of PPP projects is highly linked to a nation's involvement in politics. The research

by Banerjee and Munger (2004) reiterated these findings when they stated that it offers a

conceptual framework for what they refer to as Net Political Benefits (NPB) that factors in

macroeconomic, political, and institutional variables into this discussion. These studies have

further revealed that the gains from these privatisations are maximised in situations of

functioning capital markets and high quality of administration. These issues, according to

scholars, are likely to be critical to the success of PPP initiatives in the UAE (Li, Akintoye,

Edwards, & Hardcastle, 2005). While these elements are vital, further analysis, especially in

construction management research, has revealed that political support and the existing financial

market as vital CSFs only focus on the short-term implementation of PPPs.

The review of various bodies of knowledge on this subject has revealed that the success

factors for PPPs are not just limited to those mentioned above. These factors, as already stated,

vary from country to country and sector to sector. Hence, require an in-depth analysis. Risk

allocation, savings and need for finance, and a favourable legal framework are some of the

conditions necessary for the success of these projects. Political support, a robust private
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consortium, and an existing financial market are the other elements that affect the success of

these PPPs. A study of the most successful PPPs has also revealed that they mainly exist in stable

economies with transparent and competitive procurement procedures (Hurst & Reeves, 2004).

Effective technology transfer and opportunities for innovation that involve thorough feasibility

and assessment are also critical success factors in this field.

While most studies have mainly focused on what can make these PPPs succeed, it is also

essential to focus on the failure factors (FF) that often lead to the termination or delay of these

large projects. One issue commonly avoided about PPPs is their failure or termination rates

because not all succeed despite the enormous investments they command. Some of the FFs

identified include a lack of appropriate skills and high participation costs. These large projects

also risk failure or termination because of the high project value and high risk involved (Al-Saadi

& Abdou, 2016). These projects also often involve numerous people, and as a result, they are

bound to have credibility concerns because of the many contacts involved. The people managing

these contacts also have to deal with high demands and expectations, as seen in the case of

Heathrow's Terminal 5 expansion. This project's extensive nature meant that poor

communication existed, especially among the private partners. The long procurement and

negotiation process involved during tendering has also been a cause for concern for most of these

projects. The biggest problem is the inability to secure funding because, without capital, these

projects can barely succeed.

Given that the private investors are usually tasked with this in most PPP arrangements,

their inability to secure these funds often leads to the failure or termination of these projects

(Dulaimi, Alhashemi, Ling, & Kumaraswamy, 2010). An excellent example of this is

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Singapore's Sports Hub, which was signed to begin in March 2008. However, due to a lack of

funds, it took over two years for this nearly $1 billion project to break ground.

2.3. Political, Legal, Economic, and Managerial Factors as Means of Improving

PPP Governance Approaches

Numerous studies on PPPs often focus on how they can improve the performance of

these projects. Moreover, much of the research has focused on these large projects, mainly in the

industrial and manufacturing sectors. However, in this section, the focus will be on the PPP

projects in the industries and the lessons these manufacturers, constructors, and industrialists can

learn from these variations.

2.3.1. Political Factors

As already stated, a strong political commitment from this government will massively

encourage the establishment of PPP projects by limiting resistance and offering a clear indicator

of an administration to oblige to its contractual obligations (Dairu & Muhammad, 2015). The

two CSFs the UAE should consider for this component include political support and a centralised

system for PPP management. Research has shown that the political setting of a host nation

directly relates to these projects as a public policy. Therefore, without the needed political

support, no consent is awarded for public spending and work on public projects, thus, making

this factor crucial to the establishment and success of PPP. For example, in this nation, the

political support is mainly in Abu Dhabi and Dubai, thus, explaining why most PPP projects in

this country are concentrated in these regions. Therefore, the government must significantly

reduce its political risks in the other areas to make it attractive to PPP investors. The other
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concern for the nation is to have straightforward programs for distinct PPP projects (Peña-

Miguel & Cuadrado-Ballesteros, 2021). Moreover, the country's major political parties must

precisely and explicitly support these projects, even though this might often prove difficult where

strong and radical opposition parties exist. On this front, it is conclusive that having an explicit

policy document on PPP and clear programs for distinct projects is essential for their successful

implementation.

The other critical success factor in the political landscape that should concern the UAE is

the need to have a centralised system for managing PPP. According to the UN Economic and

Social Council, it is vital to have an authoritative and central government commitment as one of

the significant ingredients for successful PPP programs. Reports have stated that establishing

PPP units is the best means of manifesting this commitment. Such a unit is crucial because it

motivates these projects by offering helpful advice and providing a point of contact for

prospective bidders (Peña-Miguel & Cuadrado-Ballesteros, 2021). As a result, these units

automatically become knowledge and experience repositories for PPP within UAE.

Furthermore, a PPP unit can help deal with capacity limitations within this government,

leading to quality control. In summary, the presence of a competent central team with technical

competence is necessary for establishing suitable procedures for appraising, prioritising, and

implementing PPP projects (Sachs, Tiong, & Wang, 2007). Furthermore, the creation of

standardised PPP contracts is necessary for adopting these large projects.

2.3.2. Legal Factors

While entering into these collaborations, the UAE must also understand the legal

obligations it has to meet. The country must acknowledge that the private sector's eagerness to
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engage in developing infrastructure projects is affected immensely by the legal environments

under which these projects operate. Laws are vital because they grant security to private partners

to protect their interests, thereby reducing risks. Nonetheless, a complete and sound legal

framework alone is not enough because it has to be favourable. Such a framework allows the

development of a PPP project without unnecessary legal constraints regarding how the private

sector engages.

Moreover, disputes are likely to occur in these large projects, which could hugely delay

or impair projects. Therefore, the UAE must ensure that it has a functioning legal framework that

reduces such opportunistic inclinations (Liu, Wanga, & Wilkinson, 2006). Moreover, such a

regulatory framework will ensure that partners' interests are adjusted, thus, offering confidence to

private investors because this will prevent political interference from administrative institutions.

The existence of several ways of dealing with disputes is critical to encouraging private

and long-term investors. Equally, PPPs must be subjected to non-discriminatory taxation and

regulation establishments (Edkins & Smyth, 2006). Finally, the presence of a favourable legal

and regulatory framework and having different dispute resolution systems for arbitration

purposes is another critical element for fostering collaboration between the public and private

sectors.

2.3.3. Economic and Financial Factors

Global research has shown that PPPs usually attract investments if they are sustainable,

financially capable, and lucrative. Therefore, the establishment of PPP in any economy must

exist in a manner permitting PPP projects to become profitable. Such issues will make the private

sector willing to participate, and financial markets prepared to invest (Ismail, 2013). On this
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front, the UAE will have to focus on three critical CSFs, including stable macroeconomic

conditions, sound economic conditions, and existing financial markets.

A stable macroeconomic condition is the cornerstone of any successful effort to enhance

private sector development and economic growth. The signs of macroeconomic stability include

low and stable inflation compounded with low current account deficits. The country must also

ensure that steady and predictable exchange rate and even low real interests. The UAE has a

stable macroeconomic environment but must ensure that this condition persists for the

foreseeable future (Ng, Wong, & Wong, 2012). The bottom line in this situation is for private

investors to collaborate in PPP infrastructure projects that depend primarily on the operational

environments.

The economic conditions must be favourable for successful financial transactions. To a

certain extent, this can be made possible through sound monetary policy because investors are

more expected to consider engaging in markets where economic conditions favour higher

certainty. Furthermore, firms in the private sector are unlikely to commit capital within nations

where they are uncertain over economic conditions, especially the compensation of sovereign

debts. The issue on this front is that it lies outside the control of PPP stakeholders. Nonetheless,

they are critical to the growth of any PPP program (Song, Hu, & Feng, 2018). Subsequently, the

UAE government must implement economic policies supporting the financial stability and

growth needed for the private sector to operate confidently.

Research on various PPP projects worldwide has shown that most stakeholders do not

tolerate unwanted or extra risks. As a result, the nature of these financial markets has proven
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significant in facilitating PPP projects, meaning the ones with political instability or high-interest

rates are considered barriers to the success of the large projects. Other researchers have argued

that financing is a critical component for enticing the private sector to invest in public

infrastructure projects (Ng, Wong, & Wong, 2012). According to these scholars, having an

effective financial market characterised by low financing costs and various financial products

would encourage the private sector to indulge in PPP arrangements.

2.3.4. Managerial and Operational Factors

Once these projects have begun and are operational, managerial and operational elements

can play a critical role in how they proceed. Therefore, on this front, the UAE must develop

favourable and supporting factors to lead to successful project delivery and outcomes. On this

front, the organisation will have to deal with CSFs to attain this operational excellence before,

during, and after implementing PPPs.

Transparency during the procurement process is one of those factors that will influence

the success of these large projects. In this case, the country must consider how it designs and

initiates these projects. The whole process has to be organised with the procurement and

selection process. Transparency usually depends on cordial and continuous communication

involving partners and outside stakeholders. Subsequently, partners should indulge in

consultation with each other to interpret emerging concerns regarding the agreement (Liu &

Wilkinson, 2014). Public and private partners must collectively consult with external

stakeholders, including users of megaprojects, transparently and openly.

Furthermore, the UAE government must constantly remove any doubts that might find its

way to the public regarding the delivery of PPP projects. It must do this because it could

significantly affect project implementation when the public has a negative public perception of
 15

such projects. Transparency is crucial because it is the only means of delivering project

outcomes and quality services. In conclusion, it is vital to have vivid contractual obligations for

accountability purposes (Helmy, Khourshed, Wahba, & Bary, 2020). A proactive public

discourse procedure for curbing corruption and fraud is necessary to make the entire process

open to the public and is critical to project success.

The other issue the UAE government needs to address is implementing a competitive

procurement process. PPE are usually large projects, and before contracts are awarded, those

involved must undergo a fair and competitive procurement process. The key to making this

process a success is to ensure that there are several bidders in the bidding process. Therefore, this

government must protect the interests of private sector bidders by making sure no single party is

preferred (Helmy, Khourshed, Wahba, & Bary, 2020). While competition is the often used

method for selecting these bidders, "unsolicited proposals" are often used. Such proposals are

often considered controversial, especially if a government decides to negotiate directly with the

original proponent regarding project contracts without transparency or failing to consider other

bidders. As a result, the UAE government needs to create a clear and effective policy concerning

unsolicited proposals from the private sector (Osei-Kyei, Chan, & Ameyaw, 2017). Therefore,

the two CSFs are to create a process that ensures an ample number of bidders can participate and

develop effective policies for unsolicited proposals.

The third issue regarding organisational and operational factors is the project's technical

feasibility. The technical feasibility often considers whether the required technology and

resources are present, including materials and labour. As a result, the technological elements for

developing a proposed PPP project must be evaluated to determine if they are within the
 16

capabilities of a team to produce such products or services. Scholars also believe that PPP

projects are not attractive if the needed requirements and technologies keep evolving throughout

their lifecycle (Helmy, Khourshed, Wahba, & Bary, 2020). To deal with this challenge, nations

need to flexibly embed sufficient flexibility in the contract to handle continuous changes. The

level of experience public and private partners offer is crucial in ensuring that these projects

succeed, especially if it is of a complex and sensitive nature (Kwofie, Afram, & Botchway,

2016). Moreover, the chance to introduce creative solutions is critical for attaining value for

money (VFM).

The other critical success factor on this front is the presence of a responsible and

organised private sector organisation, in this case, a robust independent consortium. Such

consortiums are needed because PPP projects are known for their complex nature, making it hard

for individual firms to implement such megaprojects. As a result, they have to unite to set a

consortium. Therefore, while contracting out PPP projects, the UAE government must guarantee

that the private sector consortiums are competent and can support the megaprojects financially.

Given that the selection of the right concessionaire relates to the implementation of PPP projects,

it means that if the right actors sharing common objectives are involved, then such projects are

likely to be implemented successfully. Therefore, it is right to conclude that the UAE will always

guarantee that its megaprojects can succeed (Helmy, Khourshed, Wahba, & Bary, 2020). These

consortiums must also have the expertise, innovation, and good reputation to drive partnership

success.
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Figure 1: Summary of CSFs of PPPs

2.4. Future of Public-Private Partnerships

Traditionally, governments have engaged the private sector when it comes to providing

infrastructure and critical public services to access broader innovation, resources, and expertise.

Since their existence, PPPs have allowed governments to develop incentives favouring economic

efficiency by adequately allocating project risks. However, the world has changed so much,

especially in the wake of COVID-19, meaning that some of the PPPs will not be accomplished

(Peñalver, 2020). Therefore, the UAE needs to understand that some of its PPPs, especially those

in the transport sector, will have to deal with an unprecedented scaling down in-service demand
 18

(Andon, 2012). While such projects might technically survive, they would be such a complex

undertaking and require massive expenses.

As already stated, the current PPP system places much pressure on private partners in

case of unpredictable events that worsen the financial burden of on-course projects. Therefore,

the UAE should develop a more sophisticated assessment framework for PPP deals. Presently,

much focus is on value for money. However, over the years, the distribution of the net benefits

that users and taxpayers endure is critical to determining if a particular project makes sense if the

unexpected happens (Siemiatycki & Farooqi, 2012). Therefore, the UAE should consider two

complementary assessments that focus on the value of people and the future moving forward.

The value for money (VMF) has mainly been used to determine whether projects make

sense. While using this assessment, the focus is usually on whether a specific PPP arrangement

can lead to acceptable outcomes based on intergenerational effects. However, it fails to consider

the impact this will have on conventional public procurement. Therefore, using the value for

people (VFP) offers a more complimentary assessment form. Value for people as an assessment

measure is focused on evaluating whether and other more comprehensive benefits of PPP are

enough to reward the actual financial burden users of a project bear over the years (Peñalver,

2020). The other assessment form of assessment the UAE should consider using is value for the

future (VFF). On this front, the country should focus on whether these PPPs will positively

contribute to the well-being of successive generations and not just the current ones (Peñalver,

2020). As a form of assessment, it considers the commitments connected to how such projects

should be financed (Andon, 2012). Moving forward, the UAE, as it looks to engage in such

projects, should consider using such evaluation methods if it wants to see more PPPs succeed.
 19

2.5. Research Gap

While the research on PPPs has focused on vast areas, mainly the factors that can lead to

failure and success, these studies have mainly been one-sided. Across the developing world,

PPPs play a small function in infrastructural investment, and due to this, researchers have not

focused on these nations in their studies. On average, these PPPs account for 15 to 25% of

investment in infrastructure in these nations. In the poorest developing nations, the use of these

investment frameworks is even more negligible, meaning that the research on PPPs in such

nations is even scarcer. Another unexplored area on this subject is the focus of these PPPs,

mainly on industrial and construction projects. Therefore, research on PPP in the service sector is

quite limited because much of the emphasis is on the aforementioned sectors. The other research

gap on this subject is how these studies fail to consider why PPPs are sometimes not a healthy

option. It explains why governments often turn to the private sector to offer critical services in

the financial and health sector. PPPs are mainly used while carrying out organisational strategy

and policy implications (Leigland, 2018). Despite how PPPs are vital, there is limited prior

conceptualisation and in-depth empirical investigation. All these will form critical components of

future research in this area.

3.0. Conclusion

The discussion has revealed that if an organisation wishes to attain success with its PPPs, it

needs to make critical changes in certain key areas. One of the essential elements that will

determine the success of these PPEs in the UAE is whom the administrators will put in place to

manage these complex projects. However, one problem that could affect the implementation of

such projects is the legal framework because the structure in the country is not what investors,

especially from the west, expect. Therefore, the government would need to introduce arbitration
 20

laws or amend the existing ones to ensure that it can attract as many private investors as possible.

While political factors are considered necessary for the success of PPPs, they are not considered

significantly vital. The UAE is essentially stable politically despite some tensions with

neighbours, but this might not hugely affect the success of PPPs. Finally, these projects need

money, but once these resources are found, they do not matter much, provided the handlers are

competent and trustworthy. The research gap is another crucial component of this discourse

because it offers researchers the opportunity to explore previously unstudied areas that might

prove crucial in revolutionising this area of study.

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