cepmlp_car13_49_649756542 (2)
TRANSCRIPT
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WHAT IS THE ROLE OF LOAN
SYNDICATION IN PROJECT FINANCING?
FRANCIS N. TWINAMATSIKO*
ABSTRACT: Loan syndication as a project financing mechanism has increased over the last decade
despite the diverging needs of the lenders. The incentive for lenders to join the syndicate is obscured, though
many international project deals are financed through loan syndication. The objective of the paper is to
investigate the role of loan syndication in project financing. The motivation for this research paper stems from
the importance of credit in the project financing structure and the growing importance of syndicated loans inproject financing. The paper critically analysed the literature on the subject to derive the conclusions. The
findings indicate that the role of syndication is diverse however, mobilisation of funds and risk diversification
prevail over others.
* The author completed an MSC in Energy Studies, with a Specialising in Energy Finance, at the Centre forEnergy, Petroleum and Mineral Law and Policy (CEMPLP) at the University of Dundee. He holds an MA inEconomic Policy and Planning and a BSC (Economics) from Makerere University, Kampala-Uganda, and aDiploma in Petroleum Policy and Resource Management from PETRAD, Norway. He has also attended variousshort courses in Taxation from different countries. He is Head of Research and Statistics Division, Tax PolicyDepartment, Ministry of Finance, Planning and Economic Development, Kampala-Uganda. Email:[email protected].
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TABLE OF CONTENTS
Page
List of Figures.
List of Tables
ABBREVIATIONS
1.0 INTRODUCTION
2.0 BACKGROUND
2.1 Overview of Loan Syndication
2.2 FinancingStructures Selected Projects
3.0 THE PROCESS OF LOAN SYNDICATION
3.1 The Pre- Mandate Phase
3.2 Marketing of the Loan
3.3 Administration of the loan
4.1 Obligations of Lenders
4.2 Obligations of the Borrower (SPV)
4.3 Obligations of the Agent
5.0 THE ROLE FOR LOAN SYNDICATION.
5.1 Risk Diversification
5.2 Mobilisation of Funds
5.3 Risk Exposure
5.4 Information Sharing
5.5 Competitive Pricing
5.6 Reduction in Marketing Costs
6.0 MEASURES TO ENSURE SUCCESSFUL LOAN SYNDICATION.
6.1 Default and Remedy Clause
6.2 The Sharing Clause
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6.3 Loan Syndication Democracy
6.4 Negotiation
7.0 CONCLUSION
BIBLIOGRAPHY
List of Figures
Figure 1: Syndicated Loans Facilities 1992-2008
List of Tables
Table 1: Financing Structures of Selected Projects.
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ABBREVIATIONS
ADB - Asian Development Bank
BIS Bank for International Settlement
CA - Credit Agreement
CB - Catalyst Bank
COD - Commercial Completion Date
CRB - Credit Reference Bureau
EBRD - European Bank for Reconstruction and Development
EoD - Event of Default
FAC - Final Acceptance Certificate
IFC - International Finance Cooperation
MPS - Minimum Performance Standards
PAC - Provisional Acceptance Certificate
PB - Participating Bank
PC - Project Completion
SPV - Special Purpose Vehicle
WB - World Bank
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1.0 INTRODUCTION
Loan syndication is a funding mechanism where two or more banks come together contribute
a portion of the loan to finance the project. Loan syndication1is the most common form used
for funding project finance deals, especially when it involves large sums. This is especially
true for energy and infrastructure projects. The implementation of the planned project
depends on the availability of funds to finance it from start to completion. Equity2
contribution is usually limited and the project is usually financed by debt for a large
proportion of its finance structure, sponsors therefore must ensure that funds are available
before the project starts. The project finance is based on limited or non-recourse3to sponsors,
therefore repayment of the loan is based on the isolated and assignable cash flow from the
project4. Therefore banks need assurance to the effect that the project will be able to generate
revenue after its completion phase before committing funds to the project. This is done by
ensuring that the project has an off-taker5, commitment by sponsors through various
covenants and representations, input supply contract (fuel or gas in case of power projects),
engineering, procurement and construction contract and government support undertakings.
Loan syndication as a project financing mechanism has been increasing over the last decade
(see graph 1), despite the transactions costs involved in securing the loan agreement of all the
participating parties in the syndicate. Schure, et al (2006) show that banks extended
syndicated loans equivalent to US $2 trillion in 2003. The question is whether syndicated
loan have benefited all the counterparties. The main objective of this paper is to examine therole of loan syndication in project financing. The motivation for this research paper stems
from the importance of credit in the project finance structure and the growing importance of
syndicated loan structures in project financing. The paper has investigated the benefits
syndicated loans offer to both lenders and borrowers in order to maximise the returns on debt
and equity respectively. To achieve the objective, the paper analysed the literature on the role
of loan syndication to derive the conclusions.
1Loan syndication is one way of financing the project where many banks come together and contribute
portion of the loan requested by the borrower.2Equity ranges from 20% to 40% and debt makes 60% to 80% in most projects (Sein, 1996).
3In practice, most projects are financed based on limited recourse. Project Sponsors commit to providing
contingent financial support above the upfront equity to give lenders extra comfort (Sein, 1996).4Project financing is based on limited or non-recourse.
5Power purchase or gas sales agreement,
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2.0 BACKGROUND
2.1 Overview of Loan Syndication
Loan syndicated facilities for project financing has been increasing since 1992. In 1992, a
total of US $194.1 billion were signed as loan syndicate credit facilities, which have since
increased to $2,666.62 billion in 2007 (see Graph 1). In 2008, syndicated loan facilitiesreduced by 37% in 2008 due to the financial crisis which especially affected credit facilities
in the last quarter of 2008. In 2001 to 2003, syndicated loans reduced by 9%, 7% and 10%
due to the September 11, 2001 attack on the USA. However, it picked in 2004 with a growth
rate of 38% (see appendix one). It is evident from the syndicated loan data that international
developments affect credit facilities as they increase the risk of lending and reduce
international financial flows.
Figure 1: Syndicated Loans Facilities 1992-2008
Source: Bank for International Settlements (BIS). Quarterly Review March, 2009.
From Figure 1, a large proportion of syndicated loan finance projects are in developed
countries (on average 87%). Only 13% average (1992-2008) finance projects in developing
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countries. This may be due to the high risk and limited capacity to design international
project finance deals.
2.2 FinancingStructures Selected Projects
Table 1: Financing Structures of Selected Projects.
Project Name Equity6
($
Million)
Total
Debt
($
Million)
Syndicated
Loan ($M)
Total
Financing
($M)
Percent of
Syndicate
amount over
Total Debt.
The Hub PowerProject of Pakistan(1986)
372 1,460 695 1,832 48%
Power Transmissionand distribution ofThailand
112.5 262.5 155 375 59%
The Shajao PowerProject in China(1984)
56 484 131 540 27%
Star RefineryProject in Thailand(1992)
505 1,295 275 1,800 21%
Bridas Investmentsin Argentina
141 60 40 201 67%
Algeria-SpainPipeline Project(Morocco section)
146 829 222 975 27%
Nigeria LNG Project1995
3,240 360 260 3,600 72%
Source: Sein R. (1996) Financing Energy Projects in Emerging Economies, pp 181-207.
The data indicates the increasing importance of loan syndication in project financing. In the
19thcentury, banks started syndicating loans to share risks. In addition, most project finance
loans were huge and one bank could not manage financing the project without affecting other
portfolios. This paper explains why banks are interested in loan syndication by highlighting
the benefits available to both parties and the mitigation measures in case of default. The issue
that arises is that do banks arrange a syndicate? What is the role of each party to the
syndicate? How is the credit risk shared? What is the process of involving all the
participating banks? Who makes the decisions? What remedies are available in case of
6Includes Equity, Government contribution, and support from Multilateral Agencies.
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default? What is the process of a loan call-up? The paper would try to provide answers to
these concerns.
3.0 THE PROCESS OF LOAN SYNDICATION
3.1 The Pre- Mandate Phase
To achieve the objectives7, the loan syndication is designed to incorporate the concerns of all
the counterparties to the loan. It starts with a formal request by the prospective borrower
(SPV8) to the bank
9to advise and manage the process. The SPV mandates the bank to be a
lead manager. Alternatively the SPV can invite for competitive bidding10where a number of
banks with favourable terms of the loan are chosen to lead the syndicate and undertakes to
underwrite11
the loan. In this case, the banks appoint the lead manager.12
This results in the
award of the mandate to the lead bank, which identifies the interests of the SPV, designs an
appropriate loan structure, develops a convincing credit proposal and obtains internal
approval for marketing of the loan to prospective banks.
3.2 Marketing of the Loan
To address the concerns of the prospective participating banks, the lead bank, prepares an
information memorandum13
, term sheet, legal documentation and approaches selected banks
to invite for participation. The information memorandum includes an overview of the project,
its general background, the Project Company, its ownership, organisation and management,
financial and other information on sponsors and other major parties, experience in handling
7 Ensure coherence, participatory, effective monitoring, efficient design of the loan facility and competitive
negotiations of the term of the credit agreement8SPV and the borrower are used interchangeably.
9A bank that well knows the SPV and particularly has been dealing with the sponsors and by implication knows
their credit rating.10
In this case the underwriting banks select their lead manager.11Arranging means that sponsors are given an underwriting guarantee of the availability of funds, even if no
lenders are interested in supporting the project are found. In order to grant an underwriting guarantee, the
arranger bank must have significant financial strengths.12When the deal is not very large, the common practice is to grant the mandate to a sole arranger. However,
when the deal is sizeable and has an international scope it is more usual to create a team of arrangers, each of
which has a specific role (contacts with lawyers, handling tax matters, gathering and updating documentation)
(Stefano, 2008).The lead manager is responsible for analysis of the credit quality, negotiating covenants and
other pertinent issues related to the loan.13
The final information memorandum (FIM) used for syndication may be based on the preparatory information
memorandum (PIM) originally prepared by the sponsors or their financial advisors to present the project to
prospective lead managers (Yescombe, 2002). The PIM is the final outcome of the financial advisors work,
that is the document with which the advisor contacts potential lenders and begins to negotiate the credit
agreement and loan documentation with arrangers until the financial close is reached (Stefano, 2008).
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similar projects and their support for the current project. In addition, to ensure market risk is
mitigated the commercial basis for the project (market situation) covering supply and demand
particularly the off-taker of the output of the proposed project.
A full analysis of the project risks completion risk, market, political, technology, and force
majeure risks is done at this stage to ascertain whether the project is bankable. All contracts
pertaining to the sharing and allocation of the risk to parties competent to handle them are
cross checked by prospective banks advisors to ensure the project meets financing criteria.
At the request of the parties, project costs and financial plan, cash flow and the sensitivity
analysis, technical description of the construction and operation of the project are also
availed. In case there are issues for clarification, the borrower is called on to participate in
negotiations. When agreement is reached, each participating bank (PB) agrees to contribute a
proportion of the loan and signs the syndication agreement. This confirms that funds would
be available to the project based on the agreed financial plan.
3.3 Administration of the loan
After signing the syndicate agreement, banks select the agent to administer the loan, ensure
coordinated monitoring of the project performance. The agent acts as a conduit between the
SPV and all the participating banks (Yescombe, 2002). All issues that are related to project
implementation, administration, loan drawdown and repayments are communicated through
the agent to all counterparties. The agent receives drawdown from according to their quota
for onward transmission to the borrower. After the construction phase, the agent receives loan
repayments from the SPV and remits them to the respective banks.
14
4.1 Obligations of Lenders
The provisions of the credit agreement detail and cover the obligations of both the SPV and
the syndicate banks. This is obligatory if the deal is to be syndicated. Lenders agree to make
financial resources available up to a preset maximum amount and on request by the SPV. The
commitment of participating banks to a quota of the total amount of the loan precludes
responsibility for the obligation to make payments for any other bank (Graham, 1998).
Failure of one bank to fulfil its obligations to make advances to the SPV, the other banks are
14Obligations relate to implementation and monitoring after a syndicate is formed
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not held to make-up for the shortfall. Only the underwriting bank, takes this risk to find funds
to compensate for the shortfall.
It is the responsibility of the individual bank to ensure that their respective portion of the loan
is paid according to the financial plan. Banks have rights to get their portion of loan
repayment in accordance with the provisions of the agreement. In fact all the monies obtained
from the borrower (SPV), is shared equitably based on the proportions of their loan
contributions. They are also obligated to decide whether to continue lending during the
subsistence in the event of a default15
(EoD). However, this should not amount to stifling the
smooth implementation of the project, when it complies with its obligations.
4.2 Obligations of the Borrower (SPV)
The SPV is responsible for all project activities starting from construction phase in liaison
with the contractor and ensuring that the project is going on as planned. It receives draw
downs from the agent as provided for in the credit agreement. It is the responsibility of the
SPV to ensure that the project passes the completion test and performs as per the agreed
performance levels. In the operation phase, the SPV makes payments to the agent as
provided for under the repayment schedule. The SPV must ensure adherence to the cover
ratios, covenants, undertakings, representations and warranties. Failure to adhere would
constitute an event of default which leads to termination of the loan, acceleration or reducing
the tenure of the loan.
The SPV does not take any direct risk as to whether the syndication is successful or not. By
the time a syndicate loan agreement is signed, the loan agreement should have been signed
and thus underwritten by the lead managers. The onus is on the SPV to resist any delaying
tactics by the lead managers to avoid signing the loan agreement till the loan is syndicated to
eliminate their underwriting risk (Yescombe, 2002).
4.3 Obligations of the Agent
The loan is exclusively granted for a specific purpose specified in the credit agreement. It
cannot therefore be used for any other purpose without the approval of the syndicate banks. It
is the responsibility of the agent to enforce this. In case the agent detects that the loan has
15The event of default in a credit agreement includes non-payment, breach of representation, warranties and
covenants, bankruptcy and insolvency, and cross-default (Graham, 1998)
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been diverted, this amounts to a default. Therefore banks can terminate the loan or may force
the SPV to make early repayments16if there is evidence to the effect that the borrower will
not be able to repay the loan. It is the duty of the agent to monitor and inform the
participating banks the status of the performance of the loan. The agent however, has limited
discretion to take minor decisions as spelt out in the credit agreement. Major decisions are
taken with the approval of the syndicate. The agent is expected to act in the best interest of
the syndicate and performs his duties with skill, care and due diligence.
During construction, the agent organises site visits for the syndicate to keep breast of the
progress of the project and obtain formal presentations from the SPV and sponsors. Important
tests17 at each milestone of project completion (PC) are carried out in the presence in the
presence of all the parties. The agent ensures compliance with all the provisions of the credit
agreement (CA) for both the SPV and the syndicate banks. In case of detection of non-
compliance behaviour, organises impromptu meetings between the parties where strategies to
revert the project to normality are agree upon and implemented accordingly. Depending on
the gravity of the default, the parties may agree to terminate the loan or allow the SPV to
accelerate loan repayments. All payments from the project company are received by the
agent and remit them to the individual syndicate banks. In case of default, the agent with
agreement from syndicate banks takes enforcement action against the SPV.
5.0 THE ROLE FOR LOAN SYNDICATION.
5.1 Risk Diversification
According to Hurn, 1990 and Simons 1993, the standard theory of why banks join a syndicate
is risk diversification. Project finance deals are non-recourse and therefore depend on the
isolated and assigned cash flow from the project. With no recourse to project sponsors, in
case of default, the bank that spread the risk by joining many syndicates faces a lower risk
than one that finances projects individually. Winston, 1997 and Ongena, 2000 argue that
diversification is important to enhance shareholder value by reducing monitoring cost and
16Other remedies include acceleration of the loan declaring the loan immediately due and payable and
change of the loan into a demand loan (Graham, 1998).17
commercial completion date (COD) that checks whether the plant meets minimum performance standards
(MPS) and provided with provisional acceptance certificate (PAC), successive test are done till the syndicate is
satisfied that the plant complied with all requirements and is provided with a final acceptance certificate (FAC)
(Stefano, 2008).
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transactions costs. Bolton and Scharfstein 1996 raised the issue of how many banks should be
included in a syndicate. They developed a model of the optimal lenders and concluded that
the borrowers incentive to default is limited under multiple lending due to the uncoordinated
monitoring by participating banks. Their argument is based on the assumptions that all the
banks cannot renegotiate and internalise the agreement, and do effective monitoring
henceforth limits their ability to default for strategic reasons.
5.2 Mobilisation of Funds
Since mid 1980s, loan syndication has been at the centre stage of financing large projects. In
most cases, these projects require high credit facility18
that may not be mobilised by one bank
(Peter and Frank, 2000) (see Table 1). Financing of energy, infrastructural project bridges,
roads, tunnels, railways and public services like hospitals, prisons, and universities require
several billions of dollars which may not be available in one bank. In addition, banks have
lending exposure limits to specific sectors. When the exposure limits are high, the solution is
to join effort with other banks and contribute a portion of the loan as per the bank regulations.
This implies that in order to project finance deals with huge amounts, banks have to either
adjust their exposure limits or join a syndicate (Christophe, 2008). As long as the project is
bankable, banks with surplus funds are always happy to join the syndicate and enjoy its
benefits. To participate in debt financing, banks employ advisors to ensure that all risks are
allocated and the SPV has experience to implement the project in accordance with the
provisions of the credit agreement. The main aspect of project finance is that lenders do not
have recourse to the sponsor for loan repayment, but to the SPVs assets and cash flow,
therefore have to ensure that the project will generate revenue to repay the loan.
5.3 Risk Exposure
Risk sharing and exposure. Although the risks19in project finance structure are transferred to
parties competent to bear them, there is uncertainty that the project may not perform
according to the financing plans and the credit agreement (Hurn 1990 and Simons 1993). The
residual risk is also borne by all the participating banks. With many banks involved in the
syndicate, the risks are shared according the proportions of their contributions to the loan. In
18Loan Syndication is more suitable for the debt financing of energy projects which require large sums of
capital. Project sponsors can easily mobilise large sums using syndication mechanism (Sein, 1996, pp 97).19
Commercial banks that participate are usually experienced and can easily analyse complex project credit
risks that may be present in financing the project (Peter and Frank , 2000, 106).
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case of default, each bank bears a proportion of the risk, which is offset by returns from
successful projects. Banks are therefore cautious about the future performance of the loan
portfolios.
5.4 Information Sharing
Information sharing between many participating banks reduces risk exposure. Banks are
exposed to diverse information on borrowers, different sectors and different countries. They
are best suited to handle risks related to those particular sectors and countries. A syndicate
therefore acts as a reference credit bureau (RCB) on the borrowers and other sectors. This
further reduces their risk exposure and enhances investment in projects with the highest
returns on their equity (Peter and Frank, 2000). Information exchange is paramount for the
success of a loan syndicate. However, information gaps between the members of the
syndicate, can lead to agency problems (Christophe, 2008). To the SPV, a harmonised
channel of communication reduces costs and time that would otherwise been spent
communicating to individual participating banks.
5.5 Competitive Pricing20
Competitive pricing and more flexible funding structure benefits borrowers and the final
consumers of the output or service produced by the project. In cases where the process of
loan syndication is through competitive bidding, banks that offer the best terms of the loan
are awarded the tender (Christophe, 2008). This eases the repayment schedule of the
borrower in terms of reduction of interest rates, reduces cover ratios, and lessens loan tenure.
As a consequence, it increases the returns to equity and subordinated loans and leads to
smooth implementation of the project. Although Stefano (2008) argues that competition in
the sector has been stiff and differences in prices are minimal, it is important to note that
stiffer competition results in normal prices and maximises consumer welfare. In case of
power projects where the tariff is a function of debt service among others, any reduction in
interest rate benefits the power consumer.
20In structuring the loan, there is a trade off. Many participating banks generate competition and results in
better implementation (Benjamin, 2004).
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5.6 Reduction in Marketing Costs
To the participating banks, syndication provides them with lending opportunities that have
low marketing costs and chances to participate in future group financing. In developing
countries, commercial banks may not be exposed and experienced to loan syndication, they
are normally assisted by catalyst banks (CB) or multilateral agencies21
to access thesyndicated loan market (Sein, 1996). Many energy and infrastructure projects which require
high capital have been supported through the assistance of International Finance
Cooperation22 (IFC) as a lead arranger. This provides comfort and additional security to
commercial banks to participate in debt financing.
Despite its roles, the transactions cost involved make loan syndication costly. Its success
depends on a well designed credit agreement that provides for diverging interests of parties to
the syndicate.
6.0 MEASURES TO ENSURE SUCCESSFUL LOAN SYNDICATION.
6.1 Default and Remedy Clause
The credit agreement clearly specifies the remedies in case of default. Default arises from
non-payment of the loan, downslide in financial ratios, bankruptcy or Insolvency, non-
compliance with covenants, warranties and non-payment by the sponsor of any other loan
when due. However, all events of default must pass the materiality test in order to be
considered as EoD. The remedies include loan cancellation, right to accelerate the loan,
limitation of distributions to sponsors and step-in-rights23(Stefano, 2008). All participating
banks have the same rights to enforce these provisions, however some credit agreements
provide right of enforcement to some banks.
21
The World Bank (WB), European Bank for Reconstruction and Development (EBRD), Asian DevelopmentBank (ADB), and Inter-American Development Bank (IADB) provides partial risk guarantees to commercialbanks for lending to energy projects in developing countries (Sein, 1996, pp 96)22
The IFC handles all the technical and legal matters including risk mitigation measures and ensures that risks
are allocated to counterparties properly. Because the default on the repayment of any of the participating banks
is viewed as a default of the entire syndicated loan, thereby a default on repayment of the IFC loan. It is also
responsible for the administration of the syndicated loan and all matters related to disbursement and repayment
of the loan (Sein, 1996, pp 96).23
By means of the legal instruments provided in the finance documents, lenders are entitled to take control of
the project in order to remedy or make arrangements to remedy the causes of default situation as far as possible
(Stefano, 2008, pg. 274).
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6.2 The Sharing Clause
A sharing clause is intended to balance the interests of participating banks. It is designed to
share any proceeds from the SPV as a repayment of the loan or any other payment that results
from default and all costs related to the syndicate in accordance with their proportional loan
contributions. The clause is aimed at protecting the minority banks from the majorityparticipating ones. This ensures fair distribution of benefits to all participating banks and
leads to successful syndication.
6.3 Loan Syndication Democracy
The credit agreement contains provisions for decision making by the participating banks. In
this regard, the voting clauses are included to ensure that the syndicate obtains majority
consensus before making a decision. Voting is according to bank participation and a majority
vote would usually be obtained through a 50% simple majority or a 66% absolute majority
rule, and whichever the case, this must be expressly provided in the syndication agreement.
This power to exercise the syndicate voting rights must be exercised in the interest of the
syndicate, but not to the detriment of the voter. If adequately addressed in the credit
agreement, the syndicate democracy clause should be very instrumental in balancing the
decision making interests of the parties to the credit agreement. In case of major decisions
like calling up a loan, step-in-right enforcement; syndicate democracy prevails if the events
of default pass the materiality test.
6.4 Negotiation
This should normally be at the centre stage if loan syndication is to succeed in performing its
role. All provisions of the credit agreement and other financing documents are subject to a
comprehensive negotiation. In this regard, participating banks appoint advisors from different
disciplines to negotiate and ensure that the terms of the agreements are favourable. If the
bank feels that the terms are not in its favour, it has the liberty to leave the syndicate.
Appending the signature on the loan syndication agreement implies that all participating
banks agree to the terms of the agreement and will comply accordingly.
7.0 CONCLUSION
Loan syndication plays a significant role in financing projects. Most projects that require
large sums of funds are easily financed through syndication mechanism, otherwise it would
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