Procurement
method selection in construction industry needs experiences, knowledge, current
circumstances, etc., and will not always lead to the best results or cannot be
properly assessed compared with outcomes of the other unselected
decision-makings. Prior to a final determination which procurement method to
adopt for a project, enormous numbers of intricately interrelated underlying
factors which influence procurement method selection should be scrutinized
(e.g. characteristics of a project, owner’s project familiarity, flexibility to
the project, market status, life cycle cost, politics and so on). These
respective factors are selectively taken account of or not taken and/or
weighted differently by level of owner’s priority, that is, it depends upon
each project characteristics as well as owners’ organizational nature.
Nevertheless, academies, institutions and government authorities have, for
decades, attempted to find the systematic approach to procurement method
selection for construction projects of all sizes and complexity so as to
facilitate decision-makers and to select the most appropriate procurement
method for a project expecting satisfying quality within budget and
construction time, and the other emerging aspects of project success.
In addition
to the systematic approach to procurement method selection, a variety of forms
of contract and contract prices have been introduced and discussed for the sake
of ultimately non-disputable and more profitable projects at the same time
meeting the objectives of each participating party (Win-Win-Win Situation:
Owner-Consultant-Contractor). For instance, partnering has recently been widely
introduced for a new concept of project delivery which impels amicable
contractual relationship as well as amicable social relationship among the
parties, and which targets success of all parties’ objectives during the
project implementation. In parallel with such trend, many standard forms of
construction contract such as FIDIC, JCT, ACA have been published for advantage
of reduction of contractual risk analysis time due to lack of precedent data.
As a result, owners will have great opportunities not only to increase the
numbers of perspectives tenderers, but also to seek more beneficial procurement
methods such as EPC, BOT, etc. rather than in-house conventional procurement
methods such as DBB.
However, the
problem is that, regardless of the procurement method progression, owners are still uncertain about what method to adopt for a
given construction project to achieve success (Love, Davis, Baccarini, Wilson
and Lopez, 2008). Comprehending all the interrelated procurement methods and choosing
the most appropriate procurement method for a certain project has become a more
complex and challenging task due to emerging methods such as partnering,
two-stage tendering, Public-Private Partnership, and special contract types
used in the particular countries /regions.
Figure 1 depicts the relevant
parties where procurement selection process is carried out. Some government
regulation/law and lender’s requirements may stipulate the restriction of forms
of contract, contract prices, tendering methods and evaluation methods or suitable
experienced contractors in the local market may be reluctant to take part in
the emerging procurement methods, and thus, the owner may have to solicit
participation of international construction companies or modify the procurement
method. In case that consultancy service is present, he strives to propose the
most appropriate procurement method to the owner. But the owner still needs its
knowledge to give the go sign. In addition to knowledge on procurement methods,
comprehending characteristics and conditions of respective parties and
surrounding circumstances will be also important for owners to select the most
appropriate procurement method.
Although
adoption of an appropriate procurement method will lead to a more project
success probability, owners are still uncertain about what procurement method
to adopt and what selection process to follow for their construction projects
to achieve success. Mr. Takuya
Watanabe made a research which focused on procurement method selection in the
Department of Highways (DOH) in Thailand, especially for the
internationally-funded highway projects. The main objective of his study is to
identify the actual practice on procurement method selection in DOH, and
finally to propose a new framework for their future projects. To fulfill the
main objective, the sub-objectives were as follows:
(i) To figure out procurement
methods' experience of project major stakeholders including government
authority, engineering firms, and construction companies in Thailand.
(ii) To analyze criteria and process
of procurement method selection in internationally-funded highway projects in
Thailand.
(iii) To propose a new framework of
their procurement method selection for the purpose of the maturity and
budgetary strategy of internationally-funded highway projects in Thailand.
Conclusion
1. Findings and
Recommendation from Procurement Methods’ Experience
a.) Form of Contract
The most applied form of contract
for Thai highway construction companies was Design-Bid-Build (DBB) type. In
adopting the different forms of contract for future projects, The Department of
Highways (DOH) might have difficulty to have prospective tenderers due to no
experience issue of local construction companies, being reluctant to take part
in the costly tenders.
b.) Contract Price
Although re-measurement is the most
applied contract price to all the local construction companies in Thailand,
lump sum contract prices can be considered for the future large-scale projects
with expectation of prospective tenderers from the large-sized construction
companies. These construction companies have its experience and are capable of
evaluating project risks generated by the lump sum contract price. For the
other contract prices such as reimbursement and Guaranteed Maximum Price (GMP),
even though they have no experience, most of construction companies are
probably willing to take part in the projects since their financial risk is
very low. On another front, high financial risk will be shouldered by DOH.
c.) Tendering Method
While E-auction tendering method is
compulsorily adapted to the domestic infrastructure projects in Thailand,
single-stage one-envelope tendering method is adapted to majority of
internationally-funded infrastructure projects. The other tendering methods for
future projects can be also adopted depending on the project characteristics
with assistance of experienced tendering experts. There is a high possibility
to adopt E-auction for DOH future projects with international financial aids.
However, it may result in high price competitiveness without consideration of
quality and reluctance to take part in the tenders for international
construction companies though International Competitive Bidding (ICB).
d.) Evaluation Method
Most of the past and on-going
projects have adopted Cost Based Selection (CBS) evaluation methods. This
brings in easiness of evaluation process to DOH but burdening construction
companies due to simple price competition. Proper application of Quality Cost
Based Selection (QCBS) evaluation methods may help better quality and higher
maturity to their organizations increasing international competence in the
construction field.
By including experienced oversea
contractors in their contract packages, knowledge transfer for unfamiliar
procurement methods may be easily put into practice, especially knowledge on
the payment and document systems, and thereby local contractors can be fostered
by following those systems with assistance of DOH/BOIHC.
2. Findings and
Recommendation from Procurement Method Selection Criteria and Process
As a result of the interviews with
the staffs in BOIHC and the financial institutions, the procurement method
selection criteria and process for internationally-funded highway projects in
Thailand under the current procurement system in DOH have been identified.
There are six (6) sub-phases in their procurement phase. These are Initiation,
Initial Study, Feasibility Study, Approval Process, Bank Negotiation, and
Tendering and Award, involving several bureaus within DOH, the Ministry of
Natural Resources and Environment and so forth. Each sub-phase has the
underlying factors for procurement method selection criteria given from the
literature reviews and the interviews. However, no matter what characteristics
of projects, the single procurement methods are adopted, which are DBB forms of
contract, Re-measurement contract prices, One-envelope tendering methods and
Cost based selection (CBS) in conformance with the rules and regulations of
DOH, and Prequalification (PQ) and International Competitive Bidding (ICB)
requested by the Banks. For use of the new guideline, this rules and regulation
should be amended first.
3. Findings and
Recommendation from New Guideline for Future Internationally-funded Highway
Projects
The new guideline was proposed
considering the nature of the government functions and the absence of the
current procurement method selection guideline in DOH. In the guideline, the
five (5) sub-phases were remained, some underlying factors were added and the
new structure of the project team was proposed by the researcher. In addition,
the attached reference documents such as pros and cons of each procurement
method, procurement methods’ experience of the stakeholders in Thai highway
construction, the project team acquirement, project management structure and
stakeholders’ identification aim to assist decision-makers on the final
procurement method.
4. Encouragement
to Use this Guideline for DOH
It is understood that technology to
be proposed in most of infrastructure projects shall have been substantiated
and it is not acceptable to attempt using non-established technology especially
to any internationally-funded infrastructure projects. Just because so, does
not mean its planning and design in the only technology that is outdated should
be carried out. Technology is advancing faster and faster. In particular, there
is a remarkable technical progress in electrical, electronics and machinery
fields. Even though civil engineering technology is conservative, new tools,
techniques, technology have been steadily assimilated. Thus, we shall be greedy
to incorporate new technologies constantly. Applying the other emerging
procurement methods promotes to improve this concern by construction companies
to propose innovation technology, time- and cost-saving construction methods,
etc.
Furthermore, most of lending targets
under the conventional loan assistance used to be the construction of
infrastructure facilities for the purpose of economic and social developments.
However, problems for solution and objects for development have been various
and complicated nowadays. Therefore, the use of financial aids is recommended
not only to construct facilities but also desirably to promote the
incorporative programme packaging the issues related to facilities’ system.
For example, the incorporative
programme for road construction may be:
1. main use of local contractors, and competent foreign
contractors to join the project for mentoring the local contractors and
fostering the human resources,
2. expansion of existing vocational training center
and/or schools for the human resources to be involved in road construction and
maintenance,
3. promotion of
implementation of self-active system and toll collection system,
4. distribution
system centering on roads to be improved,
5. environmental
protection along roads, and so forth.
Success of the said incorporative
programme may generate the synergy of development outcomes.
This guideline is also useful for
DOH to promote BOT type forms of contract such as Public-Private Partnership
(PPP) and Privately Financed Projects (PFP), and seek possibility of the
international financial aids. Demands of BOT type have been increasing due to
aid fatigue of developed countries and debt crisis of developing countries.
This trend may continue unless fiscal reason of a country drastically improves.
Under the circumstances, it should be well considered that infrastructure
projects with this type of forms of contract acquire in-depth support from both
an owner and participants since some precedents of BOT type projects have
resulted in unexpected inflation of the utilities’ fee or monopolization of the
business field due to no competitors inside the country.
Lastly, infrastructure management,
especially planning of operation and maintenance during procurement phase, has
recently become significant. Reference is made in "2009 Report Card for
America's Infrastructure" published by American Society of Civil Engineers
(ASCE). It is reported that the comprehensive evaluation of U.S. infrastructure
has been severely criticized as D (Poor) in G.P.A. The comparison of GPA
evaluation in the last 15 years shows no improvement. To make matters worse,
the funds required for the improvement of the infrastructure is increasing from
1,300 billion US dollars in 2001 to 2,200 billion US dollars in 2009. This
result should be referred to practitioners not only in Thailand but also other
developing countries, and the in-depth study on the project life cycle
including O&M and abandonment of the facilities should be carried out in
the procurement phase.
Benefits of the Research
Use of this guideline enables DOH to
understand the comprehensive approach to adopt the other procurement methods
and develop the maturity and budgetary strategies for their organization. This
systematic procurement method selection improves transparency and
accountability to public people in Thailand promoting democracy principle. The
proposed structure of the project team can tackle various and complex issues
and propose appropriate procurement methods for their projects. Understanding
and practical application of this research paper will provide staffs’
proficiency on procurement methods and stimulate local contractors to have
better knowledge on the other procurement methods.
His thesis abstract is copied and
posted below.
On the
benefit of development of communication tools/channels and information
technology such as e-books, websites, etc., knowledge on various procurement
methods in construction has nowadays been available to any of entities like
owners, consultant and contractors. These knowledge are being instantly shared
from west to east over the seas and vice versa, as letting them become more
knowledgeable procurement strategic organizations. Under the circumstances,
owners can refer to pros and cons, lesson learned and issues/problems of
emerging procurement methods as alternatives to traditional ones such as DBB
and DB forms of contract. The problem is, however, that, regardless of the
procurement method progression, owners are still uncertain about what method to
adopt for a given construction project to achieve success and what process to
follow for selection of the method. In this research, the researcher focuses on
the highway projects with international financial aids under the Bureau of
International Highways Cooperation (BOIHC) within the Department of Highways
(DOH), Thailand, and attempts to promote new guideline of procurement method
selection for their future projects.
Methodology
consists of three steps. The first step is questionnaire survey to find out
procurement method’s experience of the stakeholders in Thai highway
construction. Respondents’ last 5-year experiences on procurement methods were
analyzed to find out its respective frequencies and patterns. The respondents
and interviewees were vice presidents, managing directors, civil engineers in
charge of tendering from 19 different highway construction companies and 5
different highway engineering firms. The second step is expert interview to
identify the applied procurement method selection under the current system of
BOIHC. Several meetings were conducted with staffs from BOIHC and international
financial institutions as well as a project manager from the engineering firm
currently working with BOIHC so as to comprehend their project approval
process, organization structure, procurement method selection criteria and so
forth. As a result of analyses from the first two steps, a guideline to select
the appropriate different procurement methods for their future
internationally-funded highway projects was proposed along with new process
framework including the criteria to be considered during each sub-phase of
procurement phase.
Use of this
new guideline can be helpful to not only BOIHC but also other owners who have
no in-house process asset for procurement method selection and no experience to
adopt procurement methods differently considering different project
characteristics. This will guide them in understanding the systematic approach
to procurement method selection and developing their own guideline by following
the same research methodology and adjusting the framework based upon the
owner’s nature.
Keywords:
Procurement method, Selection, Contract, Highway, FIDIC, Form of Contract,
Contract Price, Tendering Method, Evaluation Method, Department of Highways,
Thailand