Comparison of Conventional and Alternative Project Delivery Methods: What s in an Acronym? PNWS AWWA May, 2013

Transcription

1 Comparison of Conventional and Alternative Project Delivery Methods: What s in an Acronym? PNWS AWWA May, 2013

2 Outline Alternative Delivery Options Oregon and Washington Legal Context Things an Owner Should Consider

3 Outline Alternative Delivery Options Oregon and Washington Legal Context Things an Owner Should Consider

4 There are a wide range of options to delivery projects PROJECT DELIVERY MODEL SPECTRUM Design Bid - Build Construction Manager General Contractor (General Contractor Construction Manager) Design / Build Design/Build/ Operate Pipelines Pump Stations Reservoirs Treatment Plants $5 - $10 M $200 - $300 M

5 Traditional DBB Delivery is a Well Established Process Owner Operations Designer Construction Manager Contractor Subcontractor Subcontractor Subcontractor

6 The DBB process is linear with design, bidding, construction in series Project Definition Predesign Final Design Construction Startup Facility Plan Predesign Report Bidding and Award

7 Some Problems with Traditional Delivery Owner holds all risk for performance and budget Owner in the middle of all disputes Low bid can lead to contentious environment or low quality Timeline long can exceed project needs

8 GCCM or CMGC Brings Qualifications to Contractor Selection Owner Operations Designer CMGC/GCCM Subcontractor Subcontractor Subcontractor

9 Role of CMGC/GCCM Provide constructability review Provide Cost Estimating Develop Construction Packages Manage and control execution of work Bid packages or self-perform Meet budget and schedule

10 In CMGC, Contractor is selected early and a Guaranteed Maximum Price is Set Between 30-90% Design Project Definition Predesign Final Design Construction Startup CMGC Selection GMP Development Cost of work (open book) Agreed-upon contingency Competitively developed margin

11 Construction Packages are Competitively Bid and Constructed Project Definition Predesign Final Design Construction Startup Subcontractor Subcontractor Subcontractor Option to self-perform

12 Final Cost > GMP: Pain Share Final Cost < GMP: Gain Share Project Definition Predesign Final Design Construction Startup Final Cost

13 Why is CMGC Utilized? Most like traditional DBB Construction input into design process Earlier assurance of cost depending on structure Contractor not selected on low-bid Easier to attract bidders

14 Typical Shortcomings of CMGC Approach Owner still in the middle between engineer and contractor Final contractor pricing can still often has sticker shock despite involvement

15 Design Build Integrates Engineering and Construction Design Build Owner Operations Design Builder Subcontractor Subcontractor Subcontractor

16 Why is Design/Build Typically Utilized? Owner gets out of the middle of designer and contractor One entity guaranties price, schedule, quality, performance Cost savings less construction administration shorter overall schedule

17 DBO Adds Operations to Single- Point Responsibility Design Build - Operate Owner Design/ Build/ Operator Long-term warranty of performance Adds operations into integrated team Fixes long-term costs in addition to DB price, schedule, quality and performance guarantees Subcontractor Operator Subcontractor Subcontractor

18 Why is DBO Typically Utilized? Owner wants long-term life-cycle costs to be basis of decision making Risk for long-term performance shifted to DBO operator Long-term operating costs fixed

19 Multiple variations on the DB/DBO theme tailors procurement to client needs Lump Sum / bid 2 Step / Phased / GMP / Progressive

20 In Lump Sum DB/DBO, Price is Set at Time of Selection Project Definition Predesign Final Design Construction Startup Bid Price Allowances often used for undefined areas in bid

21 Performance or Prescriptive Lump Sum DB/DBO depending on amount of Owner-specified design Project Definition Predesign Final Design Construction Startup Performance Based Prescriptive

22 In Phased DB/DBO, Design is Progressed Before Price is Set Project Definition Predesign Final Design Construction Startup Selection Price

23 Progressive DB is Like CMGC with same Designer & Contractor Select Design Build Firm design construct start-up Preliminary Design process selection hydraulics pipe routing site constraints land acquisition Design Development 30% to 60% permitting quality definition constructability review operations input and lifecycle costing design progression Develop & Negotiate GMP prequalify subs finalize vendor selection develop bid packages GMP Design Completion permits & other approvals finish design construction mobilization & staging finalize bid packages Construction solicit bids manage construction compliance with specifications project controls project reviews commissioning & start-up

24 Agenda Brief Introduction to CH2M HILL Alternative Delivery Options Oregon and Washington Legal Context Things an Owner Should Consider

25 All forms of Alternative Delivery in Oregon are done as Exemption to Public Works Bidding Applicable rules in ORS 279C Must be unlikely to encourage favoritism or substantially diminish competition Must result in substantial cost savings

26 Three Steps are Required in Oregon to Utilize Alternative Delivery Prepare findings report to justify alternative delivery Hold a public hearing Prepare report after project is complete Compare actual to estimated costs Successes and failures Objective assessment of results compared to findings

27 Findings Must Provide Justification for Decision to Use Alternative Delivery Operation, budget, financial data Public benefits Value engineering Specialized expertise required Public safety Market conditions Technical complexity Funding sources

28 Selection Process in Oregon for Alternative Delivery is Unconstrained Any desired procedure (qualifications, value, price) Consistent with local procurement policies

29 Two Types of Authority for Alternative Delivery in Washington RCW Service Agreements for Water Pollution Control Facilities RCW Alternative Delivery Procedure under Public Contracting

30 Service Agreements for WPCF s (RCW ) Applicable only to water pollution control facilities Applicable to one or more of: Design, construct, operate, finance, maintain, own

31 RCW Administrative Requirements Formal selection process with evaluation criteria Department of Ecology review of final service agreement for compliance with certain other RCW s Public notice and hearing Finding that it is in public interest to enter into agreement

32 RCW Authority: Sunsets 2013 Under Legislative Review!!! The Capital Projects Advisory Review Board (CPARB) established the Project Review Committee (PRC) to oversee alternative delivery PRC grants permission: project specific approval 3 year approval for any project that meets criteria Application must show that agency has experience and qualifications to carry out the alternative delivery contracting

33 Alternative Public Contracting Not Restricted to WPCF Under RCW Design-build for projects greater than $10,000,000, AND design-build critical to construction or technology methodology; OR design is repetitive or incidental to construction, OR operator involvement not critical during design

34 Alternative Public Contracting Not Restricted to WPCF Under RCW GC/CM for any size project where complex scheduling, phasing or coordination, OR occupied facility that must continue operations during construction, OR construction input during design critical to success, OR complex or technical work environment, OR historical structure

35 DB Selection under RCW Formal selection process with criteria Can be either best value or lowest price of responsive qualified bidders Honorarium required for losing bidders

36 GC/CM Selection Under RCW Formal process with evaluation criteria Negotiations with highest ranked respondent

37 Restrictions are Imposed by RCW for GC/CM Execution Self-performance restricted to 30% of job, must be competitively bid, and work normally done by contractor Subcontracts must be competitively bid Maximum Allowable Construction Cost (MACC) set after 90% design documents

38 Agenda Oregon and Washington Legal Context Alternative Delivery Options Things an Owner Should Consider

39 What Issues Do Clients Typically Consider When Evaluating Delivery Models? Issues: Schedule How can the procurement process be varied if schedule is critical? Selection Criteria What criteria are important to success? What s the best indicator of future performance? Design Effort How much pre-design is required to ensure you get what you want (versus performance specifications)? Price How do you evaluate proposals beyond price? Does low price always win? Scope What elements of the projects should be DB versus traditional delivery? Design Approvals How much oversight of design should you have? Risk Sharing How are risks best shared? Quality How do you ensure quality? Control/Risk Sharing Cost Time Complexity

40 The Project Delivery Spectrum Owner Comfort Zones Owner maintains most control and keeps most of the risk result : owner gets prescribed project? DB/O firm assumes some control and shares proportionate risk result : owner gets defined performance Owner s Control/Risk Sharing DB/O Firm s (traditional) (Alternative)

41 The Design-Build Spectrum Owner Comfort Zones Typical 5-year project involves multiple, discrete steps result : predictability, traditional engineering? The same 5 year project might take 2 or 3 years involving parallel activities result : team approach, joint responsibility, less time Owner s Slower Control/Risk Sharing Time DB/O Firm s Faster (traditional) (alternative)

42 The Project Delivery Spectrum Owner Comfort Zones Fixed design fees and low-bid contracting result : change order potential, potentially lower first price? Single project price, often in combination with performance guarantee result : no change orders, predictable price Owner s Slower Price Only Control/Risk Sharing Time Cost DB/O Firm s Faster Best Value (traditional) (alternative)

43 The Project Delivery Spectrum Owner Comfort Zones Relatively straightforward projects result : known approaches and solutions, little opportunity for improvement? Complex projects with technical challenges result : innovation varying approaches; out-of-box thinking Owner s Slower Control/Risk Sharing Time DB/O Firm s Faster Price Only Standard Approach (traditional) Cost Complexity (alternative) Best Value Innovation

44 The Project Delivery Spectrum Owner Comfort Zones The project delivery for this profile...? will be different than for this profile Owner s Slower Control/Risk Sharing Time DB/O Firm s Faster Price Only Standard Approach (traditional) Cost Complexity (alternative) Best Value Innovation

45 Whatever delivery option is best for an owner, it can be delivered! PROJECT DELIVERY MODEL SPECTRUM Design Bid - Build CMGC GCCM Design / Build Design/Build/ Operate Pipelines Pump Stations Reservoirs Treatment Plants $5 - $10 M $200 - $300 M