THE BUILD-OPERATE-TRANSFER MODEL

Transcription

1 REPUBLIC OF TURKEY MINISTRY OF TRANSPORT AND COMMUNICATION DIRECTORATE GENERAL OF CIVIL AVIATION THE BUILD-OPERATE-TRANSFER MODEL FOR AERODROME TERMINAL BUILDINGS Hazırlayan: M. Cemil ACAR Head of the Aerodromes Department (Architect, M.Sc.) Publications of Directorate General of Civil Aviation Aerodromes Department

2 2 REPUBLIC OF TURKEY MINISTRY OF TRANSPORT AND COMMUNICATION Publications of Directorate General of Civil Aviation Publication No.: HAD/A-02 TURKISH MODEL THE BUILD-OPERATE-TRANSFER MODEL FOR AERODROME TERMINAL BUILDINGS* The printing, publication and sales rights of this book are owned by the author. The book may not be reproduced, fully or in part, without the author s permission. It is unquotable. * A rearranged form of the thesis headed The Build-Operate-Transfer Model in the Production of Public Buildings Sampling of Aerodrome Terminal Buildings- made by M.Cemil ACAR at the Gazi University Institute of Natural Sciences Main Scientific Branch of Architecture in Advisor Prof. Dr. Tanju GÜLTEKIN Prepared by M. Cemil ACAR Head of the Aerodromes Department (Architect, M.Sc.) ISBN: Directorate General of Civil Aviation Graphic Design Merdiven Ajans G.M.K. Bulvarı Özveren Sokak No.: 54/ Demirtepe - Ankara Phone: merdivenreklamtanitim@gmail.com

3 TABLE OF CONTENTS FOREWORD / OVERVIEW / PUBLIC STRUCTURE SERVICES / THE BUILD-OPERATE-TRANSFER MODEL / ANTALYA AIRPORT 2 nd INTERNATIONAL TERMINAL SAMPLING / POST-BUILDING OPERATIONAL PROCESS / CONCLUSION AND SUGGESTIONS / 153 REFERENCES / 159 APPENDICES / 163 APPENDIX-1: BUILD-OPERATE-TRANSFER MODEL TENDERS / 164 APPENDIX-2: BUILDING MANUFACTURES / 165 APPENDIX-3: FEATURES OF THE ANTALYA AIRPORT 2 nd INTERNATIONAL TERMINAL PROJECT / 171 APPENDIX-4: SYSTEMS OF OVERSEAS SUPPLY / 178 APPENDIX-5: PROGRESS ILLUSTRATIONS OF THE ANTALYA AIRPORT 2 nd INTERNATONAL TERMINAL / 179

4 The endeavours for getting our civil aviation at the highes levels by means of the decisive policies of our Ministry determined since 2002 are continuing nonstop. In order to be able to respond to the intensity permanently increasing in the aviation sector from year to year, to enable the implementation of innovations and due to the planning of constant growth, and in order to enable our aerodromes to satisfy this need, they are required to be rapidly developed. 4 Some of our airports have been reconstructed with the Build-Operate-Transfer model without even spending a penny from the public treasury for the improvement, modernization and efficient use of our aerodromes, and the operational activities of the terminals within the periods determined in their tenders have been transfered to the Private Sector. As a result of the tenders made to date, Atatürk Airport International, Antalya Airport International I and II, Dalaman Airport International, İzmir Adnan Menderes Airport International and the Esenboğa Airport Domestic and International Terminals in the framework of the Build-Operate-Transfer model have been realized. In this framework, the tenders of the Milas-Bodrum Airport have been realized as well and their works are continuing. During this process, these constructed terminals have brought the prestige of our country on the international platform to a more prestigious position both in terms of the unique architectural buildings as well as the comfort and facilities they present. It is considered that this document describing the characteristics and introducing the terminals constructed as a result of the implementation of the Build-Operate-Transfer Model published by Civil Aviation Directorate General fulfilling the organization and supervising duties of the civil aviation sector shall be very useful and that it shall constitute an example for other countries endeavouring to develop the civil aviation activities along with the practices in our country..

5 5 Binali YILDIRIM Minister of Transport and Communication

6 In the recent years, there has been a significant increase in the number of tourists visiting our country and since a great majority of the coming tourists prefer airways, the airports, which represent our gates to the external world, have been confronted with an traffice intensity of domestic and international increasing every day. Taking also into consideration the fact that the tourists visiting our country get their first impression about our country at the airports and that this circumstance directly effects our country s tourism potential, and that likewise, tourists leaving our country in a pleased mood, shall be voluntary and efficient means of publicity in terms of the country s tourism, it is even more important to modernize the aerodromes. 6 Therefore, it has become necessary for our country s aerodromes to be renewed in order to be capable of satisfying the age s needs both in terms of their physical infrastructure as well as the service they render, parallel to the developments experienced worlwide in the aviation sector, and of improving their prestige on international level. Our modern terminal buildings, which are the best indicators of the significant point our country has reached in the aviation sector, shall certainly lead the promotion of our country at the international arena and this endeavour shall receive interest both in terms of the aviation sector as well as the community of architecture. We think that this publication, which comprises the properties of the terminals completed and presented for service by the Build-Operate-Transfer model, shall be very useful for everybody including our citizens along with the relevant institutions and establishments requiring information in this matter, and we are proud of having made such a beneficial source of information awarded to the Turkish Civil Aviation..

7 7 Dr. Ali ARIDURU Director General

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9 INTRODUCTION Having arrived at the year 1990, the aerodrome passenger terminals in Turkey had remained extremely inadequate in terms of contemporary technology, the rapidly increasing number of passengers and passenger comfort. Therefore, it has been resolved during those years to build new passenger terminals. For this purpose, the State Airports Administration has opened a competition for a series of architectural projects, starting with the Antalya Airport, which has been under the hardest circumstances, and then for the Bodrum, Yeşilköy, Dalaman, İzmir and Ankara terminal buildings by order of appearance. In 1991, the project which we have presented to the project competition with limited participation, which has been opened for the Antalya Airport terminal, has been acknowledged as the most appropriate project both in terms of its master plan as well as its architectural project. In the same year, the State Airports Administration has entrusted to our office the implementation projects of the first of the terminal buildings to be built at the Antalya Airport. The preparation and approval of all projects has taken about one year. However, despite the gradually increasing number of passengers and the severe difficulties at the Antalya Airport, the building could not be constructed for quite some time since financing could not be found by the public. 9 Having arrived at the year 1996, as a solution for the resource squeeze of the new Antalya Terminal, it has been decided to build it by means of a model called Build-Operate-Transfer model which had been newly started to be implemented by the State. The tender has been realized and the building has been constructed and has come into service completely with all its systems within a short time such as 18 months. By means of this model, we have seen that, differently from the public buildings the projects of which we have been preparing over the years, a structure could be achieved where the project is implemented practically without any deficiency, that successful buildings having been partially saved from the sophisticated process of public bureaucracy could be realized, and moreover, that they could be realized rapidly. This first unit designed for 5 million passengers-year, due to the delay in starting the 2nd building on the master plan, has proved that it could even serve 10 million passengers. The 2nd unit could just be tendered in the year 2003, and this time it has again been completed and put in commission completely in a record duration of 11,5 months.

10 My esteemed colleague Mr. Cemil Acar had been in charge at the State Airports Administration during the construction and building process of the 2nd terminal in Antalya. Therefore, he had the opportunity to closely observe the Build-Operate-Transfer model in Antalya and later on at the other airports with all its aspects. He reviews in this book the tender and construction processes, starting from the projects, of both the two terminal buildings in Antalya as well as the Dalaman and Ankara terminal buildings built later on, with a remarkable attention and with all details, and presents them to the information of the concerned parties. Even I have come to know many detailed information related to the Antalya terminals, which I thought I closely knew as the project author, from this book and I have benefited much from it. I sincerely congratulate Mr. Cemil Acar for this precious work, which I find immensely useful for those interested, and wish him the continuation of his achievements. Doğan TEKELİ Architect (Dr. M.Sc.) 10

11 FOREWORD In the framework of the mankind s historical development, the breathtaking speed of the developments experienced since the 20th Century is amazing. In this modern century, where a new invention and technological development is experienced every day, the requirements of the society have undergone a change and have acquired a new skin. Some products, the existence of which we had not been aware of even a few years ago, can become indispensable elements of our life. In a developing and progressive way of living, developments are experienced likewise in communications. The aviation sector, which has been rapidly developing since early 20th century, today forms a significant point in our life. The speedy and comfortable way of travelling introduced by aircraft, has resulted in the requirement of creating new public areas. These areas, which we call Airports and where the aircraft depart and land, take shelter, where the passengers go aboard and get down, have become the indispensable of today s life. These places defining the notion of flying as the access to the living space, are expressed as places ensuring the ability to fly what mankind has been desiring most for ages for sure. Legends and fairy tales related to what man has been desiring most for centuries, to man s dreams full of curiosity and desire, looking up to the sky, related to man s affectation to birds, have always attracted interest. In Greek mythology, Daedaus of Athens and his son Ikarus have tried to put on wings and fly like a bird in order to escape from the labyrinth surrounded by high walls, where they had been arrested by the Cretan King. Apart from this mythology, many philosophers have brought forward various ideas about flying. Ultimately, this concern, this dream, has rapidly advanced toward concrete solutions by means of the works of Leonardo Da Vince, which were going beyond his era. Along with the persistent efforts of Hezarfen Ahmet ÇELEBİ, Montgolfier and then the Wright brothers, the sky has been filled with metal birds, the ability of flying speedily, a different dimension of flying has been experienced. 11 The formation of shelters of this new sector as a result of this desire and the perception of these shelters as places of preparation for flying has brought along with it its reflection to architecture. In his work on Architecture Le corbusier states that an aircraft is a product of sensitive choice. The lesson given by the aircraft lies in the logic conducting the introduction of the problem and its solution and realization.i think that I share the same spiritual status,

12 in terms of architecture, with the person having invented the aircraft the lesson to be derived from the aircraft lies in the forms created; first of all, when you look at the aircraft you don t have to see it as a bird or a dragonfly, but as a machine for flying. The lesson to be derived from the aircraft lies in the manner the problem has been introduced and in the logic of the successful solution. Nowadays, when a problem is introduced, its solution is inevitably found. Both his admiration for aircraft as awell as his manner of thinking in his associating the succes achieved in the solution of these vehicles with architecture, is of guiding nature in the solution of airport terminal buildings in the recent years. 12 The airports, which represent the threshold of moving from the hard and complex elements of urban life to the easy and speedy dimension of flying by aircraft, have always been an exciting topic in architectural terms by this characteristic. Airports are living spaces, which comprise facilities that ensure their communication to the place they wish in a speedy manner, where they are able to easily go aboard, spend time, go shopping and rest. It is an entry gate for incoming passengers ensuring their communication to the point they wish in a convenient and comfortable way. The fact that it is the first contact with the country in which they are present, for passengers entering the country, and the last place which passengers leaving the country, see, explains this significance. Airports, having achieved the property of being the threshold of countries, gain the characteristic of being the place where prestige and image concerns are in the foreground. At the same time, these buildings, which are used by thousands of persons at the same time and where many aircraft are served simultaneously, have to operate perfectly and well just like a machine. Today, studies are made constantly on the properties of airports and terminal buildings, which have reached a business volume of hundreds of billion Dollars, and this has turned into an international race. Every year new modern airports/terminal buildings are opened and are present to use as the edifice of pride of the countries in which they are located. These buildings, which hold an important place in providing the requirements of modern life where technological developments progress without reducing the speed, have started to turn into huge shopping centers parallel to the constant decrease of its use. Taking into consideration that travelling by aircraft increases significantly every year, it is clear that this conversion is unavoidable. On the other hand, global business associations and their displaying an increasing acceleration in trade have brought along the use of the airports for purposes such as meetings, lodging, education, etc. People coming from other countries or cities create the fact of saving time by completing their affairs within the borders of the airport and returning from here by aircraft again. This need has become so clear that airports have now started to achieve a new identity with their hotels, conference halls. Terminal buildings, which live for 24 hours, where the passengers are able to satisfy all kind of requirements, are quite like a little town as mentioned just above. A little town with its streets and squares, business areas, sometimes hotel, comprising permanent living elements... The fact that the energy and water quantity consumed in a terminal building

13 is equivalent or may be exceeding the consumption of many counties or small scale province centers of our country without taking the passengers into consideration, only number of employees supports the reality of this notion. Terminal buildings resembling vertical towns similar to those imaginary towns which Italo Calvio describes in his unforgettable work Invisible Towns. Terminal buildings are towns which consist of layers, are of huge scale and embraced by a single shell. Towns, too, always think that they are the work of thought or coincidence, but neither one nor the other suffices to keep their city walls upright. What you admire in a town are not its seven or seventyseven wonders, but its response to a question which you ask it or the question which it asks you and certainly expects you to answer, just like Thebai s question asked by the mouth of Sphinx says Marco Polo to Kubilay Khan in the invisible towns. We ought to ask this very intelligent utterance for terminal buildings as well. We should discuss the answers to the question which it asks us or which we ask it. 13 I wish to present my thanks to my esteemed Director General Dr. Ali ARIDURU, who has been working with superhuman performance during the process of restructuring the Civil Aviation Directorate General, who has acted as our leader with all kind of self-sacrifice and efforts for the purpose that the Civil Aviation Directorate General gains a corporate identity and the establishment of its corporate culture, and who is still continuing this position, for leading the publication of this thesis. M. Cemil ACAR Head of the Aerodromes Department (Architect, M.Sc.)

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15 1.OVERVIEW Turkey has made significant progress in the aviation sector during the last years and has achieved a graphic over the aircraft and passenger traffic increase worldwide. Related to this progress, many projects are developed regarding the requirements and capacity problems arising at aerodromes. Aerodromes, which represent the most important base of the aviation sector, are financed and operated by the public in our country. Recently, it has been gradually quitted to obtain any aerodromes, which are of large scale and require great investments to the same extent, by means of totally public investments, because one of the basic problems of developing countries such as Turkey is that the resources are limited and insufficient. Especially the planning, implementation and control of large scale projects with public contents, the new management technics becoming compulsory, from time to time leaves this kind of countries confronted with unsolvable problems. 15 For example, developing countries according to the report of the World Bank for the year 1994, reserve annually an average of 200 billion Dollars for their public structure investments. This corresponds to 4% of the national income and one fifth of the total investments. Along with this, the State becomes obligued to provide for an amount of 30% to 80% of the total investment outlays for the public structure expenses [1]. The progress of developing countries depends on investment, on any resources which may be allocated in the investment for this purpose. Any resources available should be directed to investments in a planned, programmed, moderate and rational understanding. The financing of the investment requirement, against developing limited resources, by means of public resources becomes difficult. This circumstance gives rise to a search for new resources and finance methods; efforts are increasing to ensure the contribution of private enterprises to finance and risk. Whereas the B.O.T. model is a model developed related to these searches. By the B.O.T. model it is aimed at increasing the contribution share of the private sector in the infrastructure investments, to relieve the burden of public finance and to increase efficiency in the presentation of service.

16 The B.O.T. model also gives the firms, who invest in developing countries, the opportunity to transfer their technological infrastructure and experience. Knowledge, experience and technological infrastructure, which are an important factor in the development of these countries, form a great advantage as a different reflection of the investment made. In order to enable our country, which takes place among developing countries, to join advanced countries in the coming period, at has to realize investments and has to produce, along with some other factors. When the necessity to implement great investments meet with the insufficiency of capital and technology, it becomes unavoidable to use different financing and investment methods. In this framework, the build-operate-transfer (BOT) model which has come up intensively during the 80 s, could not be implemented for a long time due to significant legal problems. 16 In recent years, the implementation of many significant projects has been realized upon the State Airports Administration s selecting the extra budgetary financing model for obtaining the aerodrome terminal buildings. 6 terminal buildings, with a construction value of more than 1 billion US Dollars, which are of international scale and equipped with up-to-date technologies, have been brought in to the national economy without being a burden to the budget. Thanks to these buildings, which have been realized by entirely extra budgetary financing, employment opportunities have been created for thousands of people both in the construction stage as well as in the operational period, and they have become an important factor of production in many sectors due to the requirements in the construction stage. The objective of the work is to consider at length the process of acquisition of terminal buildings as a sample of public buildings by the B.O.T. model applied as an extra budgetary financing model towards the provision of public requirements. It has been aimed at considering in general terms the planning, building and control stages of the terminal buildings which have been made and are actually made by means of the Build-Operate-Transfer model, and thus to consider at length the principles and dimensions influencing the design and building thanks to this model, the legal infrastructure, the adaptation with this model to technological requirements, advantages and disadvantages, innovations coming along with this model as well as developments. The underlying bases of the legal infrastructure, the limitation it brings along in implementation and matters which may be arranged with experiences obtained have been questioned. Thus, looking at implementations, it has been targeted that future oriented lessons yield inputs for new implementations. The Antalya Airport II. International Terminal and Supplementaries project, which has been tendered and the construction of which has been completed by the Build-Operate-Transfer (B.O.T.) model, and the operations of which have commenced, has been analysed in terms of its technical, economical and social feasibility as well as building management during construction. In the framework of the building management, all processes starting with the planning stage from the moment where the building and the requirement have

17 come up, have been analysed. The methods chosen due to the conditions requiring a very rapid building process as in the sampling of the Antalya Airport 2 nd International Flights, all phases have been examined interrelated with each other under the concept of integrating management. As working method; Starting from the project s commencing phase, the tender process has been reviewed and the relevant documents collected. The project s building phase has been followed up starting from the site delivery and subsequently the course of the construction s development stage has been monitored with periodical construction site inspections. Information and documents serving as resources for the construction phase have been compiled in coordination with the authorized persons of the contractor firm of the Antalya 2 nd International Terminal (ÇELEBİ-IC A.Ş.). The end of the project s construction phase (Temporary Admission period) has been examined and the term of Transition to Operation has been separately followed and data collected. 17 The data of the enterprise s 1 st year (April 7, 2005 April 30, 2006) have been collected and reviewed. The data have been analysed and compared. A comparison has been made between the projects realized by means of the BOT model with the data obtained through the design and construction controlling of the Dalaman Airport new international terminal as well as the İzmir Adnan Menderes airport new international terminal multi-storey car park project, and it has been ensured to obtain common data. The State Airports Administration s Directorate General, who has realized significant Implementations by means of the Build-Operate-Transfer Model, has made serious contributions to the establishment of the legal infrastructure of this model by the works it has performed. The experiences obtained by working in the institution, are the most important bases of this work. The researches, impressions and observations within the process of active work in the implementations, have provided inputs for the work. By means of negotiations made with the executives, who have realized the first implementations in the institution and who have attended the preparation of the specifications both legally as well as contractually, use has been of these persons experiences. Joint works realized with the contractor firm s executives and project executors as well as project authors, have constituted a basis to this work as a significant contribution. This subject has been attempted to be supported by literary works made.

18 As per the general lines of the thesis work; in the first part the introduction, in the second part the public structure services and methods of acquisition, in the third part the build-operatetransfer model and its features have been considered at length, and thus it has been strived for reaching the factors for chosing the BOT model in obtaining the terminal buildings as public building selected as sampling. In the fourth part, the planning, building and control processes of the Antalya 2 nd International Terminal has been considered at length in the framework of the construction management systematic. In the fifth part, the legal regulation of the operational period, which is one of the important stages of the build-operate-transfer model, and the revenues of the operational period have been reviewed in the framework of the contract, have been reviewed and the completion of the definition of processes in the formation of the BOT model has been ensured. 18 The parts considered at length within the scope of the thesis, such as public services and methods of their acquisition, the build-operate-transfer model, building management, have been separately investigated in various academic works and many different thesis have been prepared. However, the explication of this framework as a whole in the process of acquisition of public buildings within the systematic of the building management of terminal buildings as well as the BOT model has not been realized before and forms the genuine part of this thesis. Besides, the consideration of the building stages of the terminal buildings by the integrating management concept within the construction management systematic, and with experiences gained by being active at the stages of construction, intensifies the orginality of the thesis.

19 2.PUBLIC STRUCTURE SERVICES 2.1. Public Service Description of public service Public services are continuous and regular activities, which are realized and presented to the community by the State or by other public corporations or under their supervision and control in order to provide for general and common requirements, to provide for the public and its benefits [2]. 19 In other words, in the political direction and legal framework in which the state determines its legislative and executive power, it is defined as the conduct of public activities in a direct, continuous and harmonious manner by using public power and procedures to ensure and carry on the community s orderly and civilized life [3]. Public services should accommodate the features of being rendered regularly and continuously, being oriented toward providing public benefits and fulfilling requirements, and providing for social needs. Along with this, public services should be oriented towards obtaining social needs and may also be oriented towards providing a comfortable and convenient life of the individuals living in the community. The state, which is unable to provide for the financial and technical resources necessary for the establishment and operation of public services, has started to look for ways and methods of ensuring them to be realized through corporate bodies. One of the basic services, which are acknowledged to be important in terms of especially the economic growth and progress of a country, are public building services. Public building services have very different characteristics in many areas. These service types representing the country s infrastructure, are structures which have to be developed continuously with the dynamic components which they accommodate. These services, which feature a very extensive scope, consists of sub-sectors within itself. Among these, the transportation services being associated with the subject of the thesis, shall be handled in detail.

20 Public structure services: definition, types and general properties Public structure may be defined as the structure constituting the basis of a system or organization. According to this definition, public structure is a very extensive concept reaching from some physical components to corporate arrangements. In this scope, we may describe it as structures made or caused to be made toward public service by means of public resources according to the Country s and the society s requirements. 20 In the science of economics, the public structure concept has two different meanings, i.e. the narrow and the broader sense. In the narrow sense, public structure comprises the means such as transport, communication, energy, water, etc. sought at any location where an investment may be realized. Whereas public structure in the broader sense expresses facilities such as transport, communication, energy, water and sewerage, establishments in the field of education and health, which economy has or has to have, and also social fixed capital including the knowhow and skills related to these subjects. Accordingly, while public structure in the narrow sense is described as material or economic structure, the public structure concept in the broader sense includes also social structures comprising educational and health services as well, along with the material (economic) structure. Whereas the public structure services handled in the present study comprise the services described as material or economical infrastructure. Accordingly, the economic public structure comprises the services in the areas of energy, gas pipeline, telecommunication, water and sewerage, solid waste collecting and destruction; barrages, watering chanels or roads oriented public works and transport services such as railways, city transport, ports and waterways as well as aerodromes [4]. The public structure services generally feature the following properties: There is common consumption in public structure services. In case of public structure services, there is common consumption rather than individual consumption.. Consumers may make use of infrastructure services simultaneously. Public structure services are necessary to ensure economic development. Increase of population, the notion of urbanization, etc. factors increase the need for public structure services. Public structure services are services which have to be produced with priority and as necessary for the realization of various economic activities in a country or region [5]. Consequently, they have positive influence on the total production and economic development. Public structure services require high fixed costs at the first stage of the investment. Public structure services are services mainly requiring fixed cost. This feature of the infrastructure services results rather from the fact that they have a capital intensive production structure.

21 Public structure services are described as long-lived. Along with requiring a high investment cost, the benefits of this investment are revealed in the later years and the service has a longlived feature. In public structure services, the costs per consumer decrease while the number of consumers increases. Since the increase in the number of consumers in infrastructure services require the increase in the production scale as well, costs decrease depending on this increase [6]. Production costs decrease as a result of the increase in the production scale depending on the increase in the number of consumers Transport services as public structure service Transport services consist in themselves of road, airways, railways and sea route and port services. The general properties of transport services are as follows: All transport services require great infrastructure investments. Both consumers as well as private corporations benefit from transport services since they facilate their economic activities and cause a decrease in their costs. 21 Since the international mobility of goods and services has increased along with the globalization of transport services, it has gained more importance nowadays. Transport services require high fixed costs [7]. There are two methods in the financing of transport services. The first of them is that the costs of the transport services are covered by taxes provided for by the general budget. Likewise, in the financing by means of taxes, indirect taxes merged with fuel prices may be made use of, too. Whereas the second one are the amounts taken from those benefiting from the transport services. The passage fees taken based on the principle of benefiting are one of the methods used in financing paid roads. On the other hand, the entire cost of the service presented, may be covered by the amounts taken from those benefiting from the service by the producing entities (state and/or private sector) realizing the transport services.. In transport services, production may be significantly multidimensional. This is for instance the case for railways services. At railways, different services are rendered with the same aids and the same labor force. Both passenges as well as load may be transported on the same rails [8]. This is also the case for port services. The airways transport sector, which is an important subordinate sector of the transport sector; is an important sector consisting of institutions and establishments conducting the activies, subject of activity, instruments and equipment of advanced technology used, special

22 infrastructure and communication systems, qualified manpower, people rendered service, boards of national and international characteristics and subjects of regulation [9]. The road transport sector, which is a system consisting of passenger and freight transportation oriented, interdependent activities and units, comprises the construction of aerodromes, operation of aerodromes, airways operations, air navigation and air traffic control services, ground and chartering services, training, maintenance, relevant basic facilities and superstructure and other aviation activities as well as the coordination and supervision of all these activities according to internatonal rules [10]. Traffic estimates prepared by the ICAO express that the general increase in global airways transportation shall continue. While for the passenger traffic a growth of 4,8% is foreseen in Europe and of 3,3% on the North American market, a growth more than the other regions in expected in the Asia/Pacific region. 22 As a result of the demand and traffic increasing since the 80 s, delays in the flights, limited air traffic operations and excessively crowded terminals have become the ordinary images of air transportation. Along with this, since it has been comprehended that if urgent changes are not realized on the plans and policies, these unfavorable conditions shall become even worse, the primary subject of the aviaton sector and the governments has been determined as the aerodrome and air traffic insufficiencies. The major problems of the sector during the same term have been summarized as follows: The demand, which may be described as the number of passengers and aircraft, is increasing even more than the estimates. Modernization is needed for many air traffic control systems and the coordination between control centers has to be developed. Due to complicated bureaucracy and political hindrances, the planning, deciding and financial implementation stages of infrastructure investments get longer very much and are delayed. As a result of the awareness having arisen toward the environment, aerodrome extensions and traffic operations are not confronted with any new hindrances [11] Planning and project management in the public After 1980, along with the conversion stage of our country s development strategy in accordance with the outward-oriented and free market conditions, the role of the public sector has been reshaped. The share of the public within the total investment has decreased, and along with this, priority has been started to be given to projects in the fields of transport, energy, communication, urban infrastructure, health, etc. rather than manufacturing. This change

23 has increased the importance of planning and project management in physical and social infrastructure projects. Planning and project management principles have started to be used not only for projects directly managed by the public, but also for the evaluation and execution of investment projects conducted by means of public resources in various forms (stimulation, Build-Operate-Transfer, etc.). This circumstance has made the need for the public to work more efficiently more pronounced and has given importance to objective criteria in the process of decision. Taking into consideration that the project management methods are techniques, which come up in the market economies and develop in time, it may be expressed that project management is a technique that shall not become antiquated. Project planning is used as a tool of public policies, to the income distribution between sections and regions in the light of new trends worldwide except for economic efficiency. In addition, the participation dimension during various stages of project planning and the project process is emphasized even more each day. In this framework, it becomes important that the public resource allocation is institutionalized in a way as to ensure efficiency on the basis of objective criteria and to serve various social targets. Within this effort of institutionalization, it should be clarified which standards shall be used in various phases of designing in different sectors and for various cases where public resources are used. 23 It is important that at various stages of project planning and the project process, the allocation of public resources by the use of the principles of contribution is institutionalized so as to ensure efficiency on the basis of objective criteria and to serve various social targets. For the various circumstances where this public resource is used, this shall result in which standards and principles shall be used and which contributorship mechanisms shall be applied in project management. Taking into consideration the investments conducted by the mediation of the public sector, it is seen that many elements of the project management process are applied in an unnamed manner. What has to be done is to express this process in a clearer manner, to define deficient points, to ensure its implementation in a scientic manner and thus to ensure its consistency with international standards. In Turkey, public organizations have to conduct their investments in the framework of determinents such as project costs, characteristic, duration, location, annual allocation mentioned in the public Investment Programme put into force by the Resolution of the Council of Ministers every year. Whereas the organization in charge of the preparation of development plans and the Annual Programmes being the implementation tools of these plans, and in this framework the selection, programming of public investment allocations consistent with development targets, and the determination of investment allocations is State Planning Organization. Therefore, investing public organizations must transmit to the State Planning Organization their investment projects, which they suggest to be included in the public investment programme, together with their relevant feasibility studies. The State Planning Organization evaluates the feasibility

24 studies delivered by the public organizations in terms of the plan targets, public investment policy, national economy, sectoral an intersectoral priorities and makes a choice between the projects, and forms the public investment programme by allocating resources to the projects selected. The fact that any investment suggestions, which are communicated to the State Planning Organization by public organizations, is not supported by well-prepared feasibility studies unfavorably affects the plan-project relation, the formation of the public investment programme by preferential projects which are well analysed in technical, economical, social, financial, environmental terms, the rational use of resources and consequently the maximization of the social benefit. 24 The attempt to conduct a public investment programme, which consists of many projects the priorities of which could not be determined well by limited budget means, has become one of the basic problems encountered in introducing public investments to economics in our country on time during the recent years. In this case, sufficient resources may not be assigned in appropriate times even to projects of high priority, the construction periods of the projects lengthen, project amount rise, their costs to economics increase. In order to ensure that the public investment programme achieves a more rational structure, it has to be made of high priority projects of a number consistent with the country s funding means. But this shall just be possible by making the right choice from projects which have been well analysed in terms of national economy. This has revealed the requirement to revitalize the significance given to the concept of project analysis and the plan-project relatoin both with investing organizations as well a central decisional units. The supply of public resources as entirely provided from the budget, has become quite difficult for developing countries. The accurate and scientific realization of plan-project analysis made shall also ensure that right investment decisions are adopted as well. As a result of the planning and analysis made, the development of strategies towards the provision of investments, being oriented towards public requirements, by means of out-of-budget resources shall prevent the overstain of the budget and new employment means shall be created. For any projects to be made for public service requirements, it is not compulsory that the public share is more. However, the public share may be increased by means of the realization of certain infrastructure projects necessary for the sound functioning of economy as well as some major and risky projects, to which the private sector is not willing or for which their financial power is not sufficient, by the state. In addition, the private sector supported by indirect ways such as stimulating investments, creating a competitive environment, ensuring economic consistency by monetary and finance policies, may also undertake the main role in achieving the targeted plan objectives. On the other hand, the fact that the state has informed the private sector about the affects of both its own investment policies as well as alternative investment

25 strategies on the economic growth by means of the state s planning mediation, ensures that private sector investment decisions are founded on a more rational basis. Whether on public or on private corporation level, the use of the resources in the most efficient manner and the accurate evaluation of the options, is closely related to the investment projects perfectly prepared in various areas. In order to be able to see and prevent beforehand any damages arising from the selection of projects with imperfect and deficient aspects, detailed examinations and analysis have to be made in many subjects. Therefore, it is initially useful to deal with the phases of the project planning preparation process. The aim in project planning is to ensure that the investment or project is realized in the requested time and with low cost. The aims of a project may be listed down as follows [12]. 1. The completion of the project as soon as possible in the framework of the resources available, 2. The use of minimum resource during a certain period 3. The completion on time of a project, which shall minimize the project s total cost 25 Projects have a great variety of properties. Some of them are as follows [12]: 1. A project requires that a part of the existing resources are bound already today in order to obtain more resources. 2. The realization of projects started for benefits to be obtained in the future may take a long time. This period, which passes for the preparation, analysis, selection and implementation of projects, is called continuation period. Seeing and feeling the useful affects to be created by certain projects causing the binding of resources for long periods may take very long years. 3. The economic lives of projects various between 15 years and 50 years. If sufficient maintenance is provided, some projects may also serve permanently. 4. Projects, which are realized in order to obtain benefit by using resources and which consist of activities featuring a complex structure, may also have quite important external affects. 5. Project, being a tool of change, is the whole of coordinated actions starting without adopting any political decision and continuing until the change of resource composition and level, to ensure contribution to the realization of a country s development objectives. 6. Projects create new or supplemental production capacities including land arrangement, buildings and other constructions, machinery equipment, etc., to be used in the production of useful goods or services.

26 7. While projects cause limited resources indispensably to be bound to a certain area, thus, they also prevent these resources to be used in other areas as well. 8. Special arrangements are required for the follow up and coordination of the planning, evaluation and implementation of some major projects (South East Anatolian Project, etc.) requiring resources of immense amounts. 9. The entire projects may not be financed out of the consolidated state budget and different funding ways are frequently made use of. These may be summarized as the use of resources created by state economic enterprises in the funding of their own investments, the benefiting from out-of-budget funds or domestic development banks, the provision of loans from foreign countries and international development banks, opening the project fully or in the form of partnership to foreign capital, the implementation of the build-operate-transfer model and financial leasing Public Structure Service Procurement Models 26 Public service may be established by law or by administrative procedure based on the express power granted by the law. The fact by whom and by which method the service shall be rendered, is required and compulsory to be determined by the same administration. As in the establishment of the public service, the relevant organ has also discretionary power on the rendering procedure. The performance of public structure constructions necessary to enable the rendering of public services, is also realized by the manners foreseen by law in this framework. Instead of accounting extensively on these models, the construction models of Aerodromes terminal buildings as a Transport public structure shall be dealt with. Even though many people in Turkey have been convinced that the solution of problems of public services require major investments and that the private sector should join public services at least in the investment and operating area, the formation of right models for providing the private sector participation shall not be easy, because the problems are very complex and innovative enterprises are required for their solution. However, due to the fact that the obstructions and risks with which the private enterprise shall be confronted, are innumerable as well, just projects which have been carefully prepared and the contructual risks and economic balances of which have been established, have the chance to get ahead on the right course and be successful. In this context, it is important that those concerned with the the matter discuss their experience and exchange their ideas in order to form any models leading to succuss and their contracts. However, in Turkey, public-private sector cooperation is required at various levels for projects of private sector contribution to the public services. For the realization of this, public and private

27 initiatives are required which have common intellectual basis and which aim at participating in the formation of Turkey s sustainable development and management models by realizing active, stable, positive and courageous activities in cooperation with public administrations in the solution of public services problems as well. It has to be pointed out that the procurement models of public services is not an ordinary procurement of service by the public from the private sector. Essentially the Public Administration sets out to delegate a part of its legal duties to the private sector by means of a contract. Therefore, it has to be mentioned that the type of contract suitable to the purpose is neither the independent contractor agreement as in the construction-undertaking works, nor the purchase agreement related to the purchase of any product or service. Furthermore, the public administration plans to assign (give power for) the usage right of its assets and a part of its relevant duties, rights and responsibilities to a corporate body in order to enable these services to be rendered, and requests from the Corporate Body to use these assets and to fulfill a significant part of the duties which the administration is normally liable to realize related to the legal procurement of the services. As an important public service, the construction and operating services of the aerodrome terminal buildings have been conducted by the state administrations through methods the funding of which was entirely covered by the budget until the early 90 s. Starting with the mid of the 90 s, the construction of the aerodrome terminal buildings has begun to be realized through the build-operate-transfer model, which is an entirely out-of-budget finance model. 27 Along with the developments in the air transport sector and consequently the requirement for the modernization of the aerodromes, factors leading to the provision of the private sector contribution to the funding of aerodromes are as follows: As a result of the increasing pressure towards making restrictions in public expenses both direct investment/capital expenses as well as subventions have been restricted. The difficulty of the provision by the public of the requirements financing amount arising at aerodromes Along with the widespreading of the understanding that the state is not always the best service provider, it has been started to be discussed that a more flexible administration may be established through the inclusion of the private sector in these services, which are conducted with the understanding of public service The comprehension that aerodromes may be converted into a trade or business center, the increase of the private sector s interest in these investments [10]. The methods chosen in order to ensure the efficient participation of the private sector