Dáil Éireann Debate, Wednesday - 16 December 2015
154. Deputy Noel Coonan asked the Minister for Education and Skills the number of stages involved in the construction of a school building from pre-start to finish; the details of what each stage entails; and if she will make a statement on the matter. [45540/15]
Amharc ar fhreagraThe stages of architectural planning referred to by the Deputy arise from my Department's design team procedures for the procurement of major capital projects. These are necessary to comply with Department of Finance guidelines which require that capital projects be fully designed prior to going to tender. They also ensure proper cost management of capital projects and facilitate compliance with statutory and public procurement requirements. At present, there are five stages involved in the delivery of major school projects which reflects the Capital Works Management Framework developed by the Department of Finance. The stages are as follows:Stage 1 - Preliminary Stage 2 - Design (which is divided into Stage 2a - Developed Sketch Scheme and Stage 2b - Detailed Design)Stage 3 - Tender Action, Evaluation and Award Stage 4 - Construction Stage 5 - Handover of Works and Final Account. An extract from my Department's Design Team Procedures detailing each project stage is set out below for the Deputy's information. The fully detailed Design Team Procedures are available on my Department's website at www.education.ie.
Stage 1 Preliminary Design
The Design Team objectives for Stage 1 Preliminary Design are to:
Review all information provided whether as part of the Project Brief or otherwise and satisfy themselves that the project is viable.
Establish and analyse all site factors and constraints which may impact on the location for the proposed works and the design and cost implications of each viable option/location.
Where the project is in part or in total the repair/replacement of a building element(s), or a refurbishment project, to fully determine the scope and extent of the works necessary.
Exclude impractical and unviable options/locations, collaboratively explore and assess the remaining options/locations available for meeting the project brief, and demonstrate by comparison with the other options, that the recommended option achieves an acceptable balance between the design (architectural, engineering and health & safety), educational, and economic requirements of the project.
For details of the Stage 1 requirements refer to DTP2012 - Preliminary Design Stage 1 (available at www.education.ie).
These requirements are summarised as follows:
Immediately on appointment (within 2 weeks of appointment) the Design Team Leader is required to prepare a draft Detailed Project Programme
Concurrently the Design Team should start its site investigations and preparatory design work.
Having prepared a detailed project programme and satisfied himself/herself that the work necessary for a meaningful meeting will be completed in time, the Design Team Leader should agree a date for a Pre-Stage 1 meeting (through the appropriate Department Officer).
The purpose of the Pre-Stage 1 meeting between the relevant Department officials, Client and Design Team is to review and agree the design options and issues as well as to discuss and agree the project programme in order to permit the project to proceed without delays.
At the Pre-stage 1 meeting a preferred option will normally be agreed (See DTP2012 - Preliminary Design Stage 1 for further details).
The preferred option should now be developed taking into account any issues raised.
Once the design has been developed as above, the Design Team needs to prepare a Stage 1 (summary) Report as set out in DTP2012 - Preliminary Design Stage 1.
The Design Team should now consult with the Client and agree the final Stage 1 proposals and Stage 1 (summary) Report prior to proceeding to the next stage.
This Summary Report should also be forwarded to the Department together with the Stage Completion Certificates (for fee payment and audit/record purposes only not for “approval”).
The Design Team are not authorised to proceed to Stage 2a unless they are satisfied that the project complies with the brief, is in accordance with the recommendations made at the Pre-Stage 1 meeting and can be constructed safely within the area and cost limits.
Stage 2a Developed Design
The Design Team objectives for Stage 2a Developed Design are to:
Develop the design and accurately cost plan the option agreed with the Client to a stage where the project is fully cost planned and can be prepared to lodge for statutory approvals.
Details of the Stage 2a requirements are set out in DTP2012 – Developed Design Stage 2a (available at www.education.ie).
These requirements are summarised as follows:
As soon as the Design proposals and Stage 1 Report have been signed off (in writing) by the Client, the Design team should proceed to Stage 2a.
The Developed Sketch Scheme should evolve from these Stage 1 design proposals and must not vary substantively in design, form, layout or area. The Design Team needs to consider all aspects of the developed design in an integrated manner and shall comply with the written brief (and any authorised amendments), the agreed Schedules of Accommodation, the approved cost limits, and Design Guidelines.
Having satisfied themselves that the Design Team members can complete the work necessary for a Stage 2a meeting in time, the Design Team (through the Design Team Leader) should confirm the date and time set for a Stage 2a Stakeholder meeting, or if necessary arrange an alternate date.
The Design Team shall comply with all Stage 2a requirements as set out in DTP2012 – Developed Design Stage 2a and DTP-2012 Cost Control Procedures including pre-planning consultations and the preparation of a Stage 2a (Summary report).
On completion of Stage 2a, and prior to client consultation, the Design Team should be satisfied that the design proposals (agreed at Pre-Stage 1) as developed, can be constructed safely within the area and cost limits agreed.
The purpose of the Stage 2a meeting is to present the design proposals, cost implications and any other relevant issues to the relevant Department officials and client for discussion and comment.
The Client and their Design Team should ensure that sufficient information is available to fully explain the developed design, and should have copies of the relevant information available for distribution at the meeting.
The Design Team will also confirm the date for completion of Stage 2b.
The developed design proposals should now be amended to take into account the comments of the client and Department. The Design Team should then consult with the Client and agree the revised Stage 2a proposals and Report prior to proceeding to the next stage.
Stage 2b Detailed Design
The Design Team objectives for Stage 2b Detailed Design are to:
obtain all statutory approvals,
prepare a set of fully detailed Tender Documents, and
prepare an accurate pre-tender cost check/plan.
Details of the Stage 2b requirements are set out in DTP2012 – Detailed Design Stage 2b and DTP-2012 Preparation of Tender Documents (available at www.education.ie).
These requirements are summarised as follows:
As soon as the developed design proposals have been completed and signed off (in writing) by the Client, the Design team should proceed to Stage 2b.
Any Brief Changes (e.g. abnormal costs arising from planning conditions) should be agreed prior to completion of the tender documents. [Amendments to the brief, area limits, cost limits or application of the guidance, not confirmed in writing by the Department, are not authorised changes and have no validity.]
Where the Restricted Procedure will be used for the appointment of Contractors, the Design Team and Client should seek such authorisation not less than 60 days before the anticipated completion date for Stage 2b.
On completion of Stage 2b, the Design Team (through the Client) should write to the Department confirming that Stage 2b has been completed in accordance with the brief (including any authorised brief changes) and requesting authorisation to proceed to tender.
A copy of the Tender Documents (Volumes properly bound, labelled and paginated) and the pre-tender cost check/plan should be included (for record purposes only). The Form of Tender, Contract Schedules, Instructions to Tender and Cost Check/Plan must be in hard copy. The Works requirements and Pricing Documents should be in electronic format (i.e. as a CD). All documentation should be under cover letter from the Project Leader and list each enclosure.
The Design Team should consult with the Client explaining to the Client what is included and what is not included in the documents and get written sign-off to the Tender Documents and Cost Plan.
The written authorisation of the Department is required prior to commencing Tender Action
On receipt of Departmental authorisation, the Design Team should proceed directly to tender.
Stage 3 Tender Action
Details of the Stage 3 requirements are set out in DTP2012 – Tender Action Stage 3 (available at www.education.ie).
These requirements are summarised as follows:
Once the Design Team has written sign-off from the Client and written authorisation to proceed to tender from the Department, the Design team should proceed immediately to Stage 3.
Where the Restricted Procedure is being used the Design Team will have completed the pre-qualification process and issued de-briefing letters.
Tenders should be evaluated on the basis of the lowest Comparative Cost of Tender. No quality criteria shall apply.
On completion of the examination of the tenders, the Design Team are required to prepare a preliminary report as set out in DTP2012 – Tender Action Stage 3.
The written authorisation of the Department must be obtained before issuing (a) a Letter of Intent and (b) a Letter of Acceptance.
Once all the contract preconditions in the letter of intent have been met and the Department has given written authorisation to proceed to Contract, a Letter of Acceptance can be issued. This forms the contract and is the date for the calculation of the Contract Period.
Stage 4 Construction
Details of the Stage 4 requirements are set out in DTP2012 – Construction - Stage 4 and DTP-2012 - Cost Control Procedures (available at www.education.ie).
These requirements are summarised as follows:
All members of the Design Team are collectively responsible for the effective management of the project in order to achieve its completion on time and within budget.
The Design Team Leader (usually the Architect) is the Employer’s Representative [ER].
The ER is responsible for all progress reports.
The ER does not have the authority for any breaches to the specified limitations and is responsible for any costs arising there-from. (The ER’s authority is set out in the Conditions of Engagement and the Schedule to the building Contract.)
No Client requested change shall be permitted (whether within the ER’s authority or not) without prior Department authorisation.
Overall cost control during construction is co-ordinated by the Design Team’s Quantity Surveyor in consultation with the other members of the Design Team and in particular the ER.
Interim Certificates based on the QS’s recommendations (backed by advice from the other Design Team members where appropriate) are issued by the ER to the Contractor, and in turn by the Contractor (Original Certificates only), through the Client, to the Department for payment. There is no provision for the separate identification of amounts due to sub-contractors.
Contractor Claims shall be dealt with promptly in accordance with the Conditions of Contract. The ER should seek a monthly update on claims pending and should deal with any claims reasonably and fairly.
Performance assessment on cost control will be carried out jointly on the Design Team.
Stage 5 Handover and Final Account
Details of the Stage 5 requirements are set out in DTP2012 – Final Account - Stage 5 and the DTP-2012 Cost Control Procedures (available at www.education.ie).
These requirements are summarised as follows:
The Design Team individually and collectively are required to effectively manage the Project, and with the co-operation of the Contractor achieve a satisfactory standard of Construction, achieve Substantial Completion of all elements of the Project by the Contract Section/Phase handover dates and overall Contract Completion Date. Substantial Completion Certification must only issue in accordance with the terms of Contract i.e. all elements of work are substantially completed.
The Project Supervisor Design Process must arrange for the provision of two copies of the completed Safety File, one copy for the Client and one for the Occupier (i.e. the School principal).
Prior to hand over of the building/or part(s) thereof the Design Team shall explain the Design Concept to the occupiers so that maximum benefit can be gained from the facilities provided. They are also required to explain to the Client how to operate and maintain the building and its engineering services systems at optimum efficiency with particular emphasis on safety and energy conservation.
Under the Public Works Contracts the period for agreeing the Final Account is a maximum of 5 months. This comprises a maximum period of 2 months for the receipt of a Final Statement and a further 3 months to issue the penultimate certificate.
Refer to DTP-2012 Cost Control Procedures for the applicable cost control procedures.
The ER does not have the authority to issue Change Orders after the receipt of the Final Statement.
On completion of the Defects Period, the Client, the School Authorities, and the Design Team shall agree and confirm in writing to the Department (through the Client) that the work is complete and all defects have been corrected within this period. The final certificate can now be issued.
On completion of the Defects Period, (having agreed with the Client that all defects have been rectified), the Design Team are required to submit a Final Project Report to the Client (and through the Client to the Department).
A full set of final construction drawings shall be issued to the Department for record purposes (see DTP2012 – Final Account - Stage 5) with a final construction Schedule of Areas fully reconciled to the Brief.
Performance assessment on quality of service (post substantial completion) and cost control will be carried out jointly on the Design Team.
