Source document: https://docs-lawep.s3.us-east-2.amazonaws.com/1697633567531.pdf (Australia)
Inquiry into the role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific Submission to Joint Standing Committee on Foreign Affairs, Defence and Trade Overseas Development Institute (ODI) - Alberto Lemma and William Smith 203 Blackfriars Road London SE1 8NJ UK Tel: +44 (0)20 7922 0300 Fax:+44 (0)20 7922 0399 Contact person: Andrew Norton, Director of Research May 8th 2014 Shaping policy for development odi.org The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 Overseas Development Institute ODI (http://www.odi.org.uk) is Britain’s leading independent think-tank on international development and humanitarian policy.
Its mission is to inspire and inform policy and practice which lead to the reduction of poverty, the alleviation of suffering and the achievement of sustainable livelihoods in developing countries.

Founded in 1960, it has made major contributions to research, dissemination and policy change, on all aspects of development and humanitarian policy, for a wide range of international and national clients.
ODI’s research and policy work is undertaken by a community of internationally experienced researchers, organised by 13 thematic programmes with an additional communications support structure.

ODI’s work is characterised by marrying high quality, relevant research with close engagement with policy makers and public affairs through discussion events, a wide range of publications and conventional and social media.
The Private Sector and Markets Programme aims to maximise the contribution of the private sector to development and to shape markets for sustainable and inclusive growth, through independent, cutting-edge research, advisory work and public-affairs activities.
The main themes of the programme are i) to support companies to improve their development impact; ii) to encourage sustainable and inclusive private sector development; iii) to influence policy and regulatory frameworks that promote sustainable and inclusive growth.

The Committee’s inquiry into the role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific region is very timely given growing international interest and activity in this area.
We believe it is particularly important that new interest and initiative is grounded in solid research and data so that it can translate into real impact on poor and disadvantaged communities.

It is important that lessons are learned and previous errors avoided to prevent dissipation of current enthusiasm and optimism.

ODI is committed to building the evidence base that will help inform donor engagement with the private sector.
Recommendation: Ensure the Australian Government’s approach to development assistance is informed by a strong evidence base of solid research and data analysis and draws on the experiences of other donors.

Terms of Reference 1.

The current role of the private sector in accelerating the pace of economic growth and in reducing poverty in poor countries in the Indo-Pacific region.

Where the private sector succeeds, it creates multiple opportunities for growth.
It generates sustainable employment – the quantity and quality of which will be shaped by national resources, both human and physical, and incentives.

Private sector enterprises within developing countries, especially SMEs, are the major source of employment and generate a significant proportion of GDP.

As a source of competitiveness vis-à-vis less innovative enterprises, private enterprises also promote efficiency.
By implementing environmentally sustainable production systems, they can enhance national green growth efforts (Ellis et al.

2013 & Lemma, 2013).

Private enterprises also contribute to national incomes through three channels: re-invested in-country revenues, wages to employees and the payment of government taxes.

Where private companies invest in foreign countries (e.g.
Australian companies investing in the Indo-Pacific region), they can provide an efficient channel to transfer technical assets and know-how to host country companies.

They can also be an efficient method of promoting effective Environmental, Social and Governance (ESG) standards in developing countries, using both a bottom up (for small scale partnerships) and top-down approach (by implementing standards through supply chains).
Whether these lead to wider uptakes of improved sustainability and labour standards at the national level is not yet known.

International investment can also help participating companies access markets – Australian companies gain partners in local markets while Indo- Pacific country companies gain access to the Australian market and related networks of other high income markets (Lemma, 2014a & Lemma, 2014b).

Research on agricultural investment sources (Lemma et al.
2011) shows that the overwhelming majority of investments, in developing countries, come from the domestic private sector, evidence of its importance in the primary sector.

Tourism value chain analysis (Mitchell, Keane & Laidlow, 2009) highlights the role that local (small-scale) private enterprises can play in capturing the gains within the tourism industry.

2 2 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 2.
Legislative, institutional, social and policy constraints that may reduce the ability of private sector agencies to engage in development.

Growth in the Indo-Pacific region is limited by multiple factors i.e.

geography (islands with limited connectivity), limited economies of scale (due to small markets and populations), a pre-dominance of state owned enterprises and potentially inefficient business regulatory systems.
Capturing the positive growth and poverty reduction effects of the private sector pre-supposes the existence of efficient (and effective) regulatory regimes.

These regulatory systems are meant to benefit companies by ensuring fair competition as well as benefiting host countries by removing incentives to pollute, use resources unsustainably.

They also regulate fair remuneration and employment practices.
The lack of such regulations (fair labour laws, effective environmental regulations, clear land right systems etc.)

could limit positive private sector impacts and in some cases may even encourage activities that could be detrimental to national growth and poverty reduction.

Poor industrial policies and regulations may contribute to ineffective production systems and the proliferation of inefficient state owned enterprises.
Well-implemented industrial policy could, on the other hand, promote viable productive sectors through the creation, for example, of enterprise clusters which in-turn promote economies of scale and scope as well as limiting (or removing) the negative environmental impacts of enterprises.
Ineffective trade regulations and trade systems could limit the international reach (and success) of domestic enterprises – which is particularly important within the Indo-Pacific context due to the limited size of internal markets of many countries in the region.
In addition to potential regulatory issues, there are multiple structural constraints which could limit business contribution to the development process if not addressed, including those inherent to the operating environment and constraints within businesses themselves.

Operational environment constraints include insufficient hard and soft infrastructure e.g.
inland and maritime transport, electricity, logistics and ICT, which limit access to national and international markets and increase production costs.

Companies can be hindered by a lack of access to finance, with banks regarding some private enterprises (i.e.

start-ups or SMEs) as high-risk borrowers and thus charging higher interest rates or requiring larger collateral for the provision of loans.
Enterprise growth can also be blocked by a lack of support enterprises and institutions such as marketing companies or credit rating agencies which provide other financial and non-financial support services required for enterprise development.

Institutional issues, such as corruption, inefficient taxation levels and the practices employed by non-regulated (or informal) competitors may also impact on companies and their contribution to development.
Finally there may also be a limited pool of skilled labour which could hinder the production of goods (Lemma & Faure, 2013).

There are also constraints on the business side.

These include: deficient technical skills; inefficient production technologies; limited managerial capacity; limited access to resources.

Companies may also be unaware of, or unable to implement, inclusive business practices or best-practice social, environmental and governance standards.
Recommendation: DFAT’s Aid for Trade agenda should focus on areas where it can have most impact, for example: improving the legislative and regulatory environment, hard and soft infrastructure, skills development etc.

3.

Additional partnerships, activities or financial instruments the Australian government could use to enhance the role of the private sector in development in the Indo-Pacific region.
In a recent paper on donor engagement with business (Smith, 2013), we identified ten main modalities through which donors typically engage with businesses.
The list shows that donors can operate as much more than just a source of financial aid to companies and developing countries, through: sharing information, transferring technology, brokering relationships, influencing and advocating: i. Consultation and dialogue The most basic form of engagement with business is the consultative forum, through which donors aim to mobilise information and views that can inform donor strategy or advocacy efforts with government.
In some cases, platforms of this type have developed into channels for business and government to engage in direct 3 3 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 dialogue.

An example is the Vietnam Business Forum, established in 1997 through an initiative of the World Bank and IFC to mirror the Vietnam Consultative Group meeting between donors and the Vietnamese government.

ii.
ii.

Establishing information exchange and networking platforms focused on particular issues.

Donors have also been involved in establishing platforms which include businesses and sometimes also civil society organisations and government agencies to exchange information and ideas on how to solve particular development challenges.
Platforms of this kind include a business alliance established by the Global Alliance for Improved Nutrition (GAIN) in 2005 which promotes the role of business in combating malnutrition in low income markets.

The alliance organises information sharing events, publishes newsletters, organises business awards and brokers partnerships with civil society organisations to foster new market solutions to nutrition problems.

iii.

Linking businesses to create new opportunities.


Another common modality of donor business engagement focuses on the donor’s role as a broker of relationships between companies.

The premise for this type of intervention is that without donor intervention, insufficient information, trust or capacity exists to enable businesses to seize mutually beneficial and socially beneficial opportunities.
This brokering role has become particularly prominent in value chain projects where strengthening or facilitating new linkages in a value chain is identified as an important means of unblocking new business opportunities.

Brokering of inter-firm relationships is an important element of lead firm-SME linkage programmes.

IFC, for example, supported a programme to enable more local SMEs in Chad to become suppliers to ExxonMobil.
Many agricultural value chain interventions involve donor support to enable agricultural processors or trading companies to establish long term supplier relationships with farmers – through measures such as contract farming, out-grower agreements, certification schemes etc.

Business partnership programmes are sometimes used by western countries to involve domestic companies in the development process and encourage private sector investment in emerging economies.
These partnerships aim to enhance both the commercial and developmental outcomes of partnering companies and link small and medium enterprises in high income countries with corresponding partners in developing countries (Lemma, 2014a).

These programmes try to create additionality by targeting companies which may have not otherwise have invested in developing countries.

Positive development effects are also a fundamental criteria for investment.

iv.

Mobilising funds and expertise from business.


Donors sometimes seek to engage with business in order to raise funds or utilise expertise for particular social projects.

Generally, this involves philanthropic or ‘corporate social responsibility’ activities.

USAID has been a forerunner in engagement with business through its Global Development Alliance (GDA) programme, launched in 2001. v. Advocating for positive business practices.
Donors have also been involved in a wide range of efforts to advocate for more ethical business practices, both promoting positive practice and discouraging negative practice, typically covering human rights, labour conditions, environmental protection and corruption.

High profile voluntary commitment programmes like the UN Global Compact seek to achieve these aims by mobilising companies to sign up to a set of 10 principles as part of their business strategies and operations.
Since its establishment in 2000, over 7000 businesses have signed up to meet these commitments in 145 countries.

vi.

Providing technical or management advice to companies.

When a skills gap or lack of technical or management capacity is identified as a constraint to business development, donors have long been involved in providing technical or management assistance directly to enterprises.
This has taken the form of general assistance to businesses that have been deemed to play a positive developmental role (e.g.

small and medium enterprises, social enterprises) to enable them to carry out their core business activities more effectively.

More recently, donors have also started providing technical assistance to larger firms to support the implementation of particular initiatives which are deemed to have a positive potential development impact.
Terms for such initiatives include ‘inclusive business’ or ‘shared value’ activities which 4 4 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 contribute both to meeting business and social objectives.

DFID’s Business Innovation Facility provides technical assistance of this kind for the development or scale-up of ‘inclusive business’ models.

vii.
vii.

Sharing investment risk to stimulate innovation Often companies perceive new activities such as ‘bottom of the pyramid’ investments as riskier than ‘business as normal’.

This may be because they are new and untested or because they focus on low income, remote or unstable markets.
Donors use a variety of financial mechanisms which attempt to reduce or share these risks and thereby mobilise greater private sector investment in developmentally positive project ideas: Loan guarantee mechanisms: to encourage lending to socially beneficial but higher risk projects.

  Matching grants delivered through a competitive mechanism known as the Challenge Fund.
The AusAid Enterprise Challenge Fund for the Pacific and Southeast Asia is a good example where a donor supports up to 50% of the cost of a new private sector investment which meets developmental criteria and, while not immediately commercially viable, holds potential for longer term profit.

 Advanced market commitments - developed initially under GAVI - the Global Alliance for Vaccines and Immunisation.
The business case for pharmaceutical companies to invest in research and development into vaccines to counter diseases prevalent mainly in low income countries is often uncertain.

Under the Pneumococcal AMC, a group of donors pledged to invest up to US $1.5 billion in the purchase of vaccines for pneumococcal diseases by partner country governments if pharmaceutical companies could develop and supply vaccines.
Social venture capital funds established by donor organisations to support new start-up companies with equity investment and loans in an attempt to draw in commercial investment later when the business concept has been proved.

 viii.

Co-funding shared value.

Sometimes donors provide co-funding directly to businesses in order to help expand or mainstream activities which have been identified as having positive development outcomes.

This mechanism is used to scale-up, rather than pilot, innovations.
The IDH (Sustainable Trade Initiative) Cocoa Productivity and Quality Programme, for example, “aims to mainstream innovations on effective farmer support and improved production to catalyse large-scale positive impact within the sector.” ix.

Funding private sector research and development.


Donor funding of private sector research into ‘pro-poor’ products and services is a particular form of funding ‘shared value’ which merits separate categorisation as it may lead to creation of public goods of wider social benefit.

Types of research and development vary widely, ranging from product development partnerships in medical research through to donor support for financial product design and piloting by financial institutions.
In the case of product development partnerships (PDPs) in the health field, donors have created and co-funded hybrid institutions, such as the International AIDS Vaccine Initiative, the Medicines for Malaria Venture and the TB Alliance, to manage the research and development of vaccines, drugs and other technologies for diseases which predominantly effect poor, developing countries.

x.

Contracting private sector entities to provide services.
Traditionally, this has been the most common form of donor engagement with business.

Many donors tender projects for implementation by private sector contractors which specialise in project management in the development field.

And many projects involving investment in infrastructure rely heavily on direct contracting of construction companies to carry out this work.

A number of different approaches have been developed which combine a variety of these engagement modalities to meet different objectives.
Some of these approaches have become well known and important development concepts: making markets work for the poor (M4P), value chain development, local economic development, growth corridor approach etc.

Recommendation: The Australian Government should consider broadening its suite of tools for engaging with business, giving due consideration to all ten modalities listed here.

5 5 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 4.
The role of public-private partnerships in leveraging private sector investment in developing countries.

When discussing potential public-private partnerships it is important to consider State Business Relations (SBRs) - the interaction between government and enterprises – which play a crucial role in promoting effective skill development, capital formation and improving productivity and incomes in developing countries.
Where SBRs are formalised, responsive and aimed at improving the efficiency of government spending allocation and the implementation of effective growth and industrial policies, they can promote economic performance.

SBRs must be governed by competition principles which incentivise collaboration between government and businesses rather than the more growth detrimental collusion between these entities (Te Velde et al.

2010).
2010).

Evidence from Indian states suggests that effective SBRs positively contribute to economic growth and seem to be driven by the intensity of interactions between businesses and governments: the greater the interaction the greater the positive effect (Cali & Sen, 2011).
One of the key determinants of the success of private-public partnerships to develop infrastructure is in making sure that the contractual agreement between parties is clear, transparent, enforceable and has accurately assessed the risks associated with the investment and how these risks will be shared by the parties.

It is a very complicated technical issue so donors need to ensure that they provide the best technical and legal advice and support if promoting such arrangements.
Successful public private partnerships require a clear legal and regulatory framework to be in place which supports the drafting and implementation of these agreements; competent and accountable public authorities to manage the state commitment to such contracts; the presence of a selection of private sector companies with sufficient technical and financial capacity to participate in such investments.
It is important also to be clear that such partnerships should be viewed as mutually beneficial business partnerships rather than mechanisms for aid delivery.

If the Australian government is considering large scale public-private partnerships in Indo-Pacific countries for the construction of infrastructure and where commitments to PPPs are expected to be ongoing in the medium to long term, it should consider the implementation of centralised PPP units.
Such units sit within partner country governments and are tasked with the procurement and coordination of PPP projects.

When setting up such units, it is important to consider whether they should be an independent agency or part of a ministry as this will determine the amount of authority they hold.

Where they can wield the greatest authority, their value seems to increase (Lemma, 2013b).
In addition, PPP Units can help expedite private investments (especially for large scale infrastructure) as is the case for the Investment Board of Nepal (Basnett et al.

2014).

Development Finance Institutions (e.g.

the Dutch FMO, the British CDC or the German DEG) bridge private and public investments and can be a useful complement and catalyst to investments within the Indo-Pacific region.
DFIs act as both a catalytic and additional source of investment and development finance that provides money either for direct investments in particular projects or for development-orientated funds in commercial finance institutions within developing countries e.g.

SME finance funds or funds to support low-cost housing.
Evidence suggests that DFIs can have a significant positive impact on labour productivity (Jouanjean & Te Velde, 2013) as well as enhance employment opportunities (Massa, 2013a) and help build resilience against macroeconomic and financial shocks (Massa, 2013b).

DFI impacts are measured on their development impacts as well as on their commercial returns which means that they often have to balance the two concerns (Te Velde et al.

2014).

5.
2014).

5.

Risks related to current and possible future approaches to enhancing the role of the private sector in development, and their management.

Risks associated with donor engagement with business focus particularly on failure to ensure a number of important principles of engagement: Additionality.

Use of public or donor funds is only justified if used to incentivise, leverage or directly support activity that would not take place otherwise.
One of the key risks faced by donors is using public subsidy in a way that displaces planned private investment.

Often it is a hard judgement to make and difficult to prove that a donor intervention has truly brought about change that would not otherwise have taken place.

6 6 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 Viability.
Many donor interventions are aimed at overcoming specific market failures to stimulate new, viable business activities.

However, potential profitability is very difficult to predict and, some might argue, particularly difficult for public sector donor institutions, to predict.
Whilst clearly there is a need to minimise the risk of supporting unsustainable business ideas in the long term, donors should also be willing to accept a relatively high level of risk if they want to open up new, untested markets that benefit the poor and vulnerable.

Neutrality.

Donor support – financial or otherwise – provided to individual companies can give unfair and unwarranted commercial advantage to those companies and distort markets that the intervention is aimed at developing.
This risk can only be mitigated through comprehensive due diligence and sector wide approaches working through industry bodies and trade associations.

Value for money.

This is a principle which applies to all types of donor spending.

However, it may be of particular relevance in the sphere of private sector development due to particular popular and public scorn at the possibility of abuse of public funds to the benefit of private enterprise.
Recommendation: DFAT develop a risk management and due diligence framework specifically to assist in management of its business engagement and private sector development initiatives 6.

The role Australian and international businesses could play to support development and inclusive growth in partner countries.
Views differ on the relative importance of different categories of business entity and their contribution to development: large companies versus small companies, domestic companies versus international business, ‘social enterprise’ versus mainstream business.

In reality, the role of different business categories depends very much on sector and environment and we recommend that donors do not adopt a generic, ‘ideological’ view on what types of business are more developmentally beneficial.
ODI research, in some cases supported by the Australian development programme, suggests a number of areas where international, and in particular Australian business, may be able to play a particularly important role in promoting development.

These are just examples from our research and are not intended as an exhaustive list: Spreading the benefits of mining.
Mining activities often generate very significant resources for communities in developing counties, including employment, opportunities to provide goods and services, new infrastructure, community engagement programmes and revenues to local government.

Often, however, these resources are focused in small remote areas creating enclave economies with few wider benefits.

Such concentration of resources can also encourage corruption and conflict.
There is significant scope for donors to work with mining companies to find ways to spread the benefits of mining more widely through such mechanisms as strengthening local government capacity and governance, local content programmes, spreading best practice in community engagement and promoting transparency in revenue payment and collection.
ODI has been involved in researching the gold mining industry in Indonesia and examining opportunities to spread benefits of large scale mining operations more widely.

Improving the quality and relevance of skills development.

Unemployment, particularly amongst youth, is a serious problem in many Indo-Pacific countries and the skills gap has been identified as one of the key constraints to growth.
Employers often complain that TVET systems are not producing a workforce with appropriate skills to meet business demand.
Donors can potentially play an important role in encouraging business to engage with national TVET systems and become involved in skills development initiatives through a wide variety of mechanisms including apprenticeship and job placements, curriculum development, teacher training and updating, equipping and financing educational establishments and direct involvement in the training market.
Australia’s TAFE system is also a key resource that could help engage business more in skills development in the region.

ODI has carried out research on opportunities for business and business association involvement in skills development in both Burma and Vietnam (Pompa, 2014) Countering gender violence.

Business can play a role in addressing a wide variety of social issues which act as indirect constraints to growth but are also very serious development issues in their own right.
Gender violence is a very serious problem in many Pacific countries, impacting directly on labour productivity.

Donors can work with companies to play their role, with other sections of society, to address the problem through awareness raising, workplace policies and procedures, protection and prevention programmes and positive approaches to 7 7 The role of the private sector in promoting economic growth and reducing poverty in the Indo-Pacific regionSubmission 51 empower women within the workforce.
ODI has carried out preliminary work on the costs to business of gender violence in Papua New Guinea (Williams, 2014) and aims to assess ways in which companies can work together to address the issue.

Recommendation: DFAT develop an approach that plays to its strengths and geographical priorities to improve development outcomes by focusing on development interventions in areas such as mining, skills development and countering gender violence.
To assist the Committee in its deliberations we would welcome the opportunity to provide further information related to the above submission.

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