Case Studies
Feb 3, 2022

Governance for Principal–Principal Relationship in Infrastructure Public–Private Partnerships: A Case Study in China

Publication: Journal of Management in Engineering
Volume 38, Issue 3

Abstract

This study is aimed at analyzing how governance structure and mechanisms can support the cooperative principal–principal relationship between the public and private sectors in infrastructure public–private partnership (PPP) projects. This topic is important because PPP projects are prevalent in developing countries such as China, and the two sectors can face inherent conflicts when they come into the principal–principal relationship. To address this aim, we employed an in-depth qualitative case study of Beijing Metro Line 4—a typical and successful PPP project in China. Based upon retrospective primary and secondary data, we identified and analyzed effective governance mechanisms at institutional, corporate, and project levels. These mechanisms enable both sectors to balance power and protect mutual benefits against the adverse effects of principal–principal conflicts. This study contributes to the literature by revealing the link between governance and principal–principal relationships in Chinese infrastructure PPPs and illustrating how different levels of governance mechanisms together foster the cooperative relationship between public and private parties.

Get full access to this article

View all available purchase options and get full access to this article.

Data Availability Statement

All data, models, or code generated or used during the study are available from the corresponding author by request.

Acknowledgments

We would like to acknowledge all interviewees for their time and efforts. This study is supported and funded by the National Natural Science Foundation of China (Grant No. 72101220), as well as the Fundamental Research Funds for the Central Universities (No. 20720210067).

References

Boyer, E. J., D. M. Van Slyke, and J. D. Rogers. 2015. “An empirical examination of public involvement in public-private partnerships: Qualifying the benefits of public involvement in PPPs.” J. Public Adm. Res. Theory 26 (Jan): 45–61. https://doi.org/10.1093/jopart/muv008.
Brinkerhoff, D. W., and J. M. Brinkerhoff. 2011. “Public-private partnerships: Perspectives on purposes, publicness, and good governance.” Public Adm. Dev. 31 (1): 2–14. https://doi.org/10.1002/pad.584.
Cai, J., J. Lin, Z. Yang, X. Zhou, and Z. Cheng. 2020. “Retro or renewal: An assessment of PPP management and policy in China since 2014.” Public Works Manage. Policy 26 (4): 359–380. https://doi.org/10.1177/1087724X20970955.
Calabrò, A., M. Torchia, and F. Ranalli. 2013. “Ownership and control in local public utilities: The Italian case.” J. Manage. Governance 17 (4): 835–862. https://doi.org/10.1007/s10997-011-9206-1.
Carney, M., E. R. Gedajlovic, P. P. Heugens, M. Van Essen, and V. Oosterhout. 2011. “Business group affiliation, performance, context, and strategy: A meta-analysis.” Acad. Manage. J. 54 (3): 437–460. https://doi.org/10.5465/amj.2011.61967812.
Casady, C. B., K. Eriksson, R. E. Levitt, and W. R. Scott. 2020. “(Re)defining public-private partnerships (PPPs) in the new public governance (NPG) paradigm: An institutional maturity perspective.” Public Manage. Rev. 22 (2): 161–183. https://doi.org/10.1080/14719037.2019.1577909.
Chang, Z. 2013. “Public-private partnerships in China: A case of the Beijing No.4 Metro line.” Transp. Policy 30 (Nov): 153–160. https://doi.org/10.1016/j.tranpol.2013.09.011.
Chen, C., and M. Hubbard. 2012. “Power relations and risk allocation in the governance of public private partnerships: A case study from China.” Policy Soc. 31 (1): 39–49. https://doi.org/10.1016/j.polsoc.2012.01.003.
Chen, Z., N. Daito, and J. L. Gifford. 2015. “Data review of transportation infrastructure public-private partnership: A meta-analysis.” Transp. Rev. 36 (2): 228–250. https://doi.org/10.1080/01441647.2015.1076535.
Delhi, V. S. K., and A. Mahalingam. 2020. “Relating institutions and governance strategies to project outcomes: Study on public–private partnerships in infrastructure projects in India.” J. Manage. Eng. 36 (6): 04020076. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000840.
De Schepper, S., M. Dooms, and E. Haezendonck. 2014. “Stakeholder dynamics and responsibilities in Public–Private Partnerships: A mixed experience.” Int. J. Project Manage. 32 (7): 1210–1222. https://doi.org/10.1016/j.ijproman.2014.01.006.
Dewulf, G., and M. J. Garvin. 2019. “Responsive governance in PPP projects to manage uncertainty.” Construct. Manage. Econ. 38 (4): 383–397. https://doi.org/10.1080/01446193.2019.1618478.
Dharwadkar, R., G. George, and P. Brandes. 2000. “Privatization in emerging economies: An agency theory perspective.” Acad. Manage. Rev. 25 (3): 650–669. https://doi.org/10.2307/259316.
Eisenhardt, K. M. 1989. “Building theories from case study research.” Acad. Manage. 14 (4): 532–550. https://doi.org/10.5465/amr.1989.4308385.
Fleta-Asín, J., F. Muñoz, and J. Rosell-Martínez. 2019. “Public-private partnerships: Determinants of the type of governance structure.” Public Manage. Rev. 22 (Oct): 1489–1514. https://doi.org/10.1080/14719037.2019.1637014.
Guevara, J., M. J. Garvin, and N. Ghaffarzadegan. 2020. “The forest and the trees: A systems map of governance interdependencies in the shaping phase of road public–private partnerships.” J. Manage. Eng. 36 (1): 04019031. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000726.
Guo, F., Y. Chang-Richards, S. Wilkinson, and T. C. Li. 2014. “Effects of project governance structures on the management of risks in major infrastructure projects: A comparative analysis.” Int. J. Project Manage. 32 (5): 815–826. https://doi.org/10.1016/j.ijproman.2013.10.001.
Hodge, G., C. Greve, and A. Boardman. 2017. “Public-private partnerships: The way they were and what they can become.” Aust. J. Public Adm. 76 (3): 273–282. https://doi.org/10.1111/1467-8500.12260.
Hodge, G. A., and C. Greve. 2007. “Public-private partnerships: An international performance review.” Public Adm. Rev. 67 (3): 545–558. https://doi.org/10.1111/j.1540-6210.2007.00736.x.
Hueskes, M., K. Verhoest, and T. Block. 2017. “Governing public-private partnerships for sustainability.” Int. J. Project Manage. 35 (6): 1184–1195. https://doi.org/10.1016/j.ijproman.2017.02.020.
Jiang, Y., and M. W. Peng. 2010. “Principal-principal conflicts during crisis.” Asia Pac. J. Manage. 28 (4): 683–695. https://doi.org/10.1007/s10490-009-9186-8.
Johnston, J., and S. P. Gudergan. 2007. “Governance of public-private partnerships: Lessons learnt from an Australian case?” Int. Rev. Adm. Sci. 73 (4): 569–582. https://doi.org/10.1177/0020852307083459.
Ke, Y., W. Hao, H. Ding, and Y. Wang. 2017. “Factors influencing the private involvement in urban rail public-private partnership projects in China.” Constr. Econ. Build. 17 (1): 90–106. https://doi.org/10.5130/AJCEB.v17i1.5105.
Levitt, R. E., and K. Eriksson. 2016. “Developing a governance model for PPP infrastructure service delivery based on lessons from Eastern Australia.” J. Organ. Des. 5 (1): 1–8. https://doi.org/10.1186/s41469-016-0009-3.
Levitt, R. E., and K. Eriksson. 2019. “Mitigating PPP governance challenges: Lessons from eastern Australia.” In Public–private partnerships for infrastructure development: Finance, stakeholder alignment, governance, edited by W. R. Scott, R. E. Levitt, and M. J. Garvin, 105–120. Cheltenham, UK: Edward Elgar Publishing.
Li, J., and C. Qian. 2013. “Principal-principal conflicts under weak institutions: A study of corporate takeovers in China.” Strategic Manage. J. 34 (4): 498–508. https://doi.org/10.1002/smj.2027.
Li, S., H. Wu, and X. Song. 2017. “Principal–principal conflicts and corporate philanthropy: Evidence from Chinese private firms.” J. Bus. Ethics 141 (3): 605–620. https://doi.org/10.1007/s10551-015-2720-3.
Liang, Q., and H. Hu. 2020. “Study on identification of spurious public–private partnership projects in China.” IEEE Trans. Eng. Manage. 67 (2): 376–384. https://doi.org/10.1109/TEM.2018.2877261.
Liu, T., Y. Wang, and S. Wilkinson. 2016. “Identifying critical factors affecting the effectiveness and efficiency of tendering processes in Public–Private Partnerships (PPPs): A comparative analysis of Australia and China.” Int. J. Project Manage. 34 (4): 701–716. https://doi.org/10.1016/j.ijproman.2016.01.004.
Liu, T., and S. Wilkinson. 2013. “Can the pilot public-private partnerships project be applied in future urban rail development? A case study of Beijing Metro Line 4 project.” Built Environ. Project Asset Manage. 3 (2): 250–263. https://doi.org/10.1108/BEPAM-04-2012-0014.
Maurya, D., and A. K. Srivastava. 2018. “Managing partner opportunism in public-private partnerships: The dynamics of governance adaptation.” Public Manage. Rev. 21 (10): 1420–1442. https://doi.org/10.1080/14719037.2018.1559341.
Musawir, A., S. B. Abd-Karim, and M. S. Mohd-Danuri. 2020. “Project governance and its role in enabling organizational strategy implementation: A systematic literature review.” Int. J. Project Manage. 38 (1): 1–16. https://doi.org/10.1016/j.ijproman.2019.09.007.
Parrado, S., and A.-M. Reynaers. 2019. “Public–private partnerships: Procedural over results-driven accountability.” Int. Rev. Adm. Sci. 87 (Dec): 962–979. https://doi.org/10.1177/0020852319864161.
Peng, M. W., D. Y. L. Wang, and Y. Jiang. 2008. “An institution-based view of international business strategy: A focus on emerging economies.” J. Int. Bus. Stud. 39 (5): 920–936. https://doi.org/10.1057/palgrave.jibs.8400377.
Petersen, O. H. 2011. “Public-private partnerships as converging or diverging trends in public management? A comparative analysis of PPP policy and regulation in Denmark and Ireland.” Int. Public Manage. Rev. 12 (2): 1–37. https://doi.org/10.1515/9783110262810.1.
Ping Ho, S., R. Levitt, C.-W. Tsui, and Y. Hsu. 2015. “Opportunism-focused transaction cost analysis of public-private partnerships.” J. Manage. Eng. 31 (6): 04015007. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000361.
Quelin, B. V., S. Cabral, S. Lazzarini, and I. Kivleniece. 2019. “The private scope in public-private collaborations: An institutional and capability-based perspective.” Organ. Sci. 30 (4): 831–846. https://doi.org/10.1287/orsc.2018.1251.
Sabry, M. I. 2015. “Good governance, institutions and performance of public private partnerships.” Int. J. Public Sect. Manage. 28 (7): 566–582. https://doi.org/10.1108/IJPSM-01-2015-0005.
Sauerwald, S., and M. W. Peng. 2012. “Informal institutions, shareholder coalitions, and principal–principal conflicts.” Asia Pac. J. Manage. 30 (3): 853–870. https://doi.org/10.1007/s10490-012-9312-x.
Smith, E., T. Umans, and A. Thomasson. 2017. “Stages of PPP and principal-agent conflicts: The Swedish water and sewerage sector.” Public Perform. Manage. Rev. 41 (1): 100–129. https://doi.org/10.1080/15309576.2017.1368399.
Song, J., Y. Hu, and Z. Feng. 2018. “Factors influencing early termination of PPP projects in China.” J. Manage. Eng. 34 (1): 05017008. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000572.
Su, Y., D. Xu, and P. H. Phan. 2008. “Principal-principal conflict in the governance of the Chinese public corporation.” Manage. Organ. Rev. 4 (1): 17–38. https://doi.org/10.1111/j.1740-8784.2007.00090.x.
Tan, J., and J. Z. Zhao. 2019a. “Explaining the adoption rate of public-private partnerships in Chinese provinces: A transaction cost perspective.” Public Manage. Rev. 23 (Apr): 590–609. https://doi.org/10.1080/14719037.2019.1699947.
Tan, J., and J. Z. Zhao. 2019b. “The rise of public-private partnerships in China: An effective financing approach for infrastructure investment?” Public Adm. Rev. 79 (4): 514–518. https://doi.org/10.1111/puar.13046.
Tariq, S., and X. Zhang. 2021. “Socioeconomic, macroeconomic, and sociopolitical issues in water PPP failures.” J. Manage. Eng. 37 (5): 04021047. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000947.
Verhoest, K., O. H. Petersen, W. Scherrer, and R. M. Soecipto. 2015. “How do governments support the development of public private partnerships? Measuring and comparing PPP governmental support in 20 European countries.” Transp. Rev. 35 (2): 118–139. https://doi.org/10.1080/01441647.2014.993746.
Wang, H., B. Chen, and J. Koppenjan. 2021. “A refined experimentalist governance approach to incremental policy change: The case of process-tracing China’s central government infrastructure PPP policies between 1988 and 2017.” J. Chin. Governance 1–25. https://doi.org/10.1080/23812346.2021.1898151.
Williamson, O. E. 1975. Markets and hierarchies, 26–30. New York: Free Press.
Williamson, O. E. 1979. “Transaction-cost economics: The governance of contractual relations.” J. Law Econ. 22 (2): 233–261. https://doi.org/10.1086/466942.
Wilson, D. I., M. Kumaraswamy, N. Pelham, and C. F. Duffield. 2010. “A review of Australian PPP governance structures.” J. Financ. Manage. Prop. Constr. 15 (3): 198–215. https://doi.org/10.1108/13664381011087470.
Xiong, W., B. Chen, H. Wang, and D. Zhu. 2019. “Governing public-private partnerships: A systematic review of case study literature.” Aust. J. Public Adm. 78 (1): 95–112. https://doi.org/10.1111/1467-8500.12343.
Yan, L., and L. Zhang. 2020. “Interplay of contractual governance and trust in improving construction project performance: Dynamic perspective.” J. Manage. Eng. 36 (4): 04020029. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000791.
Young, M. N., M. W. Peng, D. Ahlstrom, G. D. Bruton, and Y. Jiang. 2008. “Corporate governance in emerging economies: A review of the principal–principal perspective.” J. Manage. Stud. 45 (1): 196–220. https://doi.org/10.1111/j.1467-6486.2007.00752.x.
Zhai, Z., M. Shan, A. Darko, and Y. Le. 2020. “Visualizing the knowledge domain of project governance: A scientometric review.” Adv. Civ. Eng. 2020 (Feb): 1–15. https://doi.org/10.1155/2020/6813043.
Zhang, S., Y. Gao, Z. Feng, and W. Sun. 2015. “PPP application in infrastructure development in China: Institutional analysis and implications.” Int. J. Project Manage. 33 (3): 497–509. https://doi.org/10.1016/j.ijproman.2014.06.006.
Zhao, Z. J., G. Su, and D. Li. 2018. “The rise of public-private partnerships in China.” J. Chin. Governance 3 (2): 158–176. https://doi.org/10.1080/23812346.2018.1457297.

Information & Authors

Information

Published In

Go to Journal of Management in Engineering
Journal of Management in Engineering
Volume 38Issue 3May 2022

History

Received: Jul 20, 2021
Accepted: Nov 30, 2021
Published online: Feb 3, 2022
Published in print: May 1, 2022
Discussion open until: Jul 3, 2022

Permissions

Request permissions for this article.

Authors

Affiliations

Assistant Professor, Dept. of Civil Engineering, School of Architecture and Civil Engineering, Xiamen Univ., Siming District, Xiamen, Fujian 361000, China. ORCID: https://orcid.org/0000-0003-4237-947X. Email: [email protected]; [email protected]
Zhichao Xu, Ph.D. [email protected]
Senior Economist, Tianjin Rail Transit Group Co. Ltd., No. 36 Caizhi Rd., Xiqing District, Tianjin 300392, China (corresponding author). Email: [email protected]

Metrics & Citations

Metrics

Citations

Download citation

If you have the appropriate software installed, you can download article citation data to the citation manager of your choice. Simply select your manager software from the list below and click Download.

Cited by

  • Investigating the Role of Executive Intrafirm Alumni Networks in Top Management Fraud: Multilevel Study in China’s Construction Industry, Journal of Management in Engineering, 10.1061/JMENEA.MEENG-5648, 40, 2, (2024).
  • Agent-Based Simulation Modeling for the Evaluation and Dynamic Adjustment of Project Benefits in Urban Rail Transit PPPs, Journal of Management in Engineering, 10.1061/JMENEA.MEENG-4682, 39, 2, (2023).
  • Advancing Urban Sustainability through Public–Private Partnerships: Case Study of the Gu’An New Industry City in China, Journal of Management in Engineering, 10.1061/(ASCE)ME.1943-5479.0001103, 39, 1, (2023).
  • Public–private partnerships: a collaborative framework for ensuring project sustainable operations, Engineering, Construction and Architectural Management, 10.1108/ECAM-12-2021-1124, (2022).

View Options

Get Access

Access content

Please select your options to get access

Log in/Register Log in via your institution (Shibboleth)
ASCE Members: Please log in to see member pricing

Purchase

Save for later Information on ASCE Library Cards
ASCE Library Cards let you download journal articles, proceedings papers, and available book chapters across the entire ASCE Library platform. ASCE Library Cards remain active for 24 months or until all downloads are used. Note: This content will be debited as one download at time of checkout.

Terms of Use: ASCE Library Cards are for individual, personal use only. Reselling, republishing, or forwarding the materials to libraries or reading rooms is prohibited.
ASCE Library Card (5 downloads)
$105.00
Add to cart
ASCE Library Card (20 downloads)
$280.00
Add to cart
Buy Single Article
$35.00
Add to cart

Get Access

Access content

Please select your options to get access

Log in/Register Log in via your institution (Shibboleth)
ASCE Members: Please log in to see member pricing

Purchase

Save for later Information on ASCE Library Cards
ASCE Library Cards let you download journal articles, proceedings papers, and available book chapters across the entire ASCE Library platform. ASCE Library Cards remain active for 24 months or until all downloads are used. Note: This content will be debited as one download at time of checkout.

Terms of Use: ASCE Library Cards are for individual, personal use only. Reselling, republishing, or forwarding the materials to libraries or reading rooms is prohibited.
ASCE Library Card (5 downloads)
$105.00
Add to cart
ASCE Library Card (20 downloads)
$280.00
Add to cart
Buy Single Article
$35.00
Add to cart

Media

Figures

Other

Tables

Share

Share

Copy the content Link

Share with email

Email a colleague

Share