Project Close-Out 1

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PrOjeCt IMPleMentatIOn 37

The resources of partners, consultants and contractors were thus used in various ways in the twelve cases, as summarized in Table 5.1. Common to all the cases was packaging the work to suit the capacity of the available organizations able to respond with expertise in the work required.

Table 5.1 The twelve cases: Key resources and contract structure

Case Key resources Contract structure new tV business

technical resources of three organizations and sponsor’s project leadership

joint venture between sponsor and two complementary partners

temporary rail station

Scaffolding contractor familiar with railside work plus local works contractors

established call-off contracts

thames bank raising

Project team leaders from longer- term project team and consultant’s staff

Work divided into sections to suit already approved small works contractors

Flood diversion

Project team drawn from longer- term project

three separate contracts each appropriate in size for the resources available from local contractors

Ouse bank raising

engineering expertise and construction resources drawn from long-term capital works programme

established contractor and engineering consultants team provided an immediate resource to commence assessing the needs and then form a small team for the emergency work

Viaduct propping

Civil engineering contractor and props supplier already on call

established call-off contracts

embankment stabilization

Piling contractor diverted from nearby project

addition to the scope of the contract for nearby work

remote bridge repair

Major components adapted from completed temporary materials for another project

three distinct packages to employ three contractors selected for their track records in the type of work required

temporary power line

Contractor experienced in inexperienced utility’s type of work. Use of rail tunnel route for cables

Contractor with consultants and subcontractors initiated and ran the project

aire banks restoration

engineering expertise and construction resources drawn from long-term capital works programme

established contractor and engineering consultants team provided an immediate resource to commence assessing the needs and then form a small team for the emergency work

railway reinstatement

national priority for diverting materials and specialized track- laying equipment

Maintenance contractor designated with experience of previous major emergency work available to manage the work

9/11 pile removal

Contractors’ expertise in using heavy engineering construction and earth-moving equipment

Four known major contractors familiar with heavy construction

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EBSCO Publishing : eBook Collection (EBSCOhost) - printed on 3/17/2018 9:37 AM via KAPLAN HIGHER ED (IA) AN: 790656 ; Wearne, S. H., White-Hunt, Keith.; Managing the Urgent and Unexpected : Twelve Project Cases and a Commentary Account: ns019078

ManagIng the Urgent and UnexPeCted38

Understanding how to use available resources for unexpected work can be a problem, particularly in intensive work such as at the 9/11 pile. In the animal epidemic case included in Appendix 2, the public authority organization found it difficult to realize that others’ local resources, prevented from being used for their normal work by the event itself, could be of immediate use for the urgent and unexpected work required. Excessive resources can be a problem. In the 9/11 pile case many individuals brought resources to the work spontaneously, in response to the news of this massive destruction. This required an additional task of getting the many resources that were surplus to requirements to depart to cease hampering essential traffic.

In all the cases where contractors and consultants were employed their managers were integrated into the project teams to take part in the decision- making process on what tasks were to be undertaken and how to overcome the associated problems, working closely to the cooperative mode known as ‘alliancing’ as described by Bower (2003). In the rail reinstatement case, collaboration between the sponsor and contractor was facilitated by shared recent experience of working together on a previous major rail reinstatement project.

Reported as being of particular value was the involvement of individual managers who understood exactly how their own organization did and could operate. This allowed urgent and unexpected demands to be met; for instance, to obtain resources rapidly, select a management team, gain approvals and operate temporary cost recording and payment systems.

The cases varied on the impact of the urgent and unexpected projects on existing planned work. In the flood damage repair and flood prevention cases, staff were switched to these urgent and unexpected projects from longer-term related planned work. In the remote bridge repair, temporary power line, new TV business and rail reinstatement cases the normal work of individuals was temporarily covered by colleagues. In the 9/11 pile removal case all such other work was suspended.

Not always recognized at the start of some cases was the need for deputies for managers to match shift-working requirements, especially where the project was expected to be completed within a few days.

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PrOjeCt IMPleMentatIOn 39

Normal procedures of safety plans, independent monitoring and reporting were followed in the cases requiring construction work. At the 9/11 site the parties agreed that the safety standards in the pile sifting should be those applicable to emergencies and rescue rather than construction.

Contract terms

Cost-based terms of payment or flexible use of variation provisions were used in most of the cases, with some additions of incentives for speed of completion.

In all the cases employing contractors for construction work, the terms of contract chosen were those already approved by the sponsors, for instance in the Thames bank case to avoid delays in asking for waivers of rules or procedures. In the remote bridge repair case, payment was based on a schedule of rates under terms of contract familiar in Australian and British practice, together with incentives for early completion. The bills of quantities basis of payment as operated for the flood diversion work and the Thames bank raising were similar in effect.

For the river bank repair and improvement cases the contractor and consultant teams already employed for longer-term programmes were switched to the urgent and unexpected work under cost-plus payment terms. For the rail reinstatement work the work was similarly ordered under the cost-reimbursable terms of the impending maintenance contract. For the embankment stabilization the work was added under the cost-reimbursable terms of a contract already running for nearby work.

In the 9/11 pile removal case the contracts were made orally, for later confirmation. Terms adapted from previous contracts for emergency repair of a city stadium were used. Employing contractors without competitive bidding was allowed under provisions for emergencies. Payment was based on time and materials reimbursement plus fixed fees, adapted from terms used for previous emergency work.

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ManagIng the Urgent and UnexPeCted40

In all cases, terms of contract familiar to sponsors were therefore preferred, with only secondary adaption to urgency.

Costs

Though the cost of working as fast as possible was not a factor in deciding to initiate these projects, cost forecasts and records were required by the sponsors as the work proceeded in order to plan progress payments and for reporting to stakeholders.

In the London flood protection case the authority to proceed from the sponsor’s organization depended on formal approvals of the proposed work, its effects on amenities, possible cost and employment of contractors, requiring a recognized sequence of submissions to committees. To save time the submissions were sent to each committee simultaneously rather than requesting waivers to submitting them.

Waiving rules to get work started rapidly has been reported from other urgent and emergency cases, for instance in California to place contracts without competitive bidding for the Northridge earthquake recovery work. In none of the reported cases was there the political reluctance to waive rules and procedures which has been blamed for contributing to delay in immediate remedial work following other calamities (Philips 2005).

Project Performance

All the projects met their sponsors’ objectives. As observed in Chapter 2, urgency was sustained through the lengthier projects such as the Thames bank raising.

Several people interviewed for the case studies stated that the project teams operated very effectively on these urgent and unexpected projects. Individuals commented that the work for their project was not only successful but also exceptionally stimulating and satisfying. Motivation was sustained through several months and even with personnel changeovers experienced in the lengthier cases of the Thames bank raising and the 9/11 pile sifting and removal work.

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PrOjeCt IMPleMentatIOn 41

Contractors previously shown trust when employed on normal projects were reported as responding particularly well to these unexpected demands, for instance in making their best staff available and supporting them in sustained all-hours working.

In some cases communications and procedures in the sponsor organizations changed to respond to urgency, for instance in achieving rapid vertical teams, learning a discipline of accuracy for confidence in oral instructions, rapid selection of resources based upon known performance and simplification of procedures. It was also said that organizational behaviour under the pressure of urgency was closer to the rational principles for managing their companies that advisers had previously said should have applied than their current practice at the time. Surprise was an opportunity for ideas. Urgency precipitated simplicity?

decisions Critical for Success

Table 5.2 lists the managerial and engineering decisions recorded as critical to success in the twelve cases.

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ManagIng the Urgent and UnexPeCted42

Table 5.2 The twelve cases: Managerial and engineering decisions

Case Decisions critical to success new tV business

• taking on the transmission company and competing commercial company as partners

• appointment of full-time project managers for the project and its launch • appointment of a project manager able to coordinate staff in different

companies and with different cultures • agreement of all stakeholders to an integrated project plan • Injection of early control of the project, across all parties

temporary rail station

• network rail’s Property groups were used to emergencies and other reactive work and had contractors in place for immediate calls

• temporary footbridges are often required during track work and so a basis for design and pre-qualified contractors were available

• Cooperation between all parties. Communications on the project were good as many individuals in northern rail, network rail, the contractors and subcontractors were used to working together

thames bank raising

• Project manager appointed under accepted system for inter-departmental projects

• Prior briefing of property occupiers and owners • Personal contacting of occupiers and owners wherever possible • area managers authorized to take the lead with occupiers and owners • Once-only disturbance of occupiers • division of the construction work into sections suitable for the

contractors Flood diversion scheme

• agreement to proceed with the emergency scheme when need was uncertain

• Quick decisions on the line for the emergency project based upon knowledge of the ground built up for the permanent scheme

• early establishment of project management • appointment of the project teams already familiar with all parties and

the type of project parameters and demands • employment of consultants already experienced in the area • employment of known contractors with the resources required • Use of appropriate standard conditions of contract • agreement on cost-plus terms of payment • detailed direction and control by the project management team • round-the-clock working by project team, consultants and contractors

Ouse bank raising

• Strong cooperation between the sponsor, local authority, police, fire and rescue services during and immediately following the flood event

• Professional competence of all staff • Use of the contract provisions pre-arranged for planned works • Use of a national procurement contract to obtain a large quantity of

sheet piles in a short timescale • Competence and willingness of consultants and contractors

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PrOjeCt IMPleMentatIOn 43

Case Decisions critical to success Viaduct propping

• highways agency, Connect Plus Services (CPS), police and emergency services had well-established links for daily traffic management and emergency planning

• CPS quick response for analysis of the potential damage • the availability of contractors under framework contracts • Priority given to achieving partial reopening of northbound M1 lanes

as access for propping under the viaduct was possible only from one direction. Priority was given to restoring two northbound lanes for football supporter traffic expected to be passing on Saturday at about 8pm. as a consequence of this priority the speed of the subsequent work of propping the southbound lanes was limited because access was possible only between the completed northbound lane props

• rapid response of propping contractor and availability of their resources • reopening time not promised too soon

embankment stabilization

• the project team and contractor were brought together within 18 hours of the first call for their services

• to establish good relationships rapidly it was agreed with the contractor and the consultants that they would bring known senior staff to the project

• a contractor who had satisfactorily just completed a rail bridge reconstruction project nearby was appointed to undertake site investigation, design and construction to stabilize the embankment and other affected structures

• Some rock-fill to start to consolidate the berms each side of the embankment could be started before geotechnical investigation, analysis and design had been completed

• For site investigation and design the contractor employed consulting engineers who had considerable experience of similar railway work

• the contractor began work on the embankment under a variation order to the existing contract for a nearby site. Following this start, a contract for the heck work was made under a ‘rapid response’ version of model conditions for reimbursable payment

• Separate consultant also with extensive railway expertise was appointed to check design, supervise construction and monitor safety on behalf of the sponsor

• delivery of the very large volume of rock and topsoil was required through village limited to 14 hours per day, despite the urgency

remote bridge repair

• Immediate authorization to start the project • to proceed with a temporary structure spanning the collapsed pier

using long girders on hire • Piles for a new pier could be driven from the temporary bridge, piers

strengthened and the collapsed spans replaced • Ordering materials in advance of appointing contractors • division of the work between contractors having the necessary capacity • department’s inspection, cost monitoring and contract management

staff located on site • early establishment of communication systems for the project and for all

stakeholders and media

Table 5.2 The twelve cases: Managerial and engineering decisions (continued)

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ManagIng the Urgent and UnexPeCted44

Case Decisions critical to success temporary power line

• Commitment of utility and contractor staff ahead of a letter of intent • acceleration of first programme for the work • Completion of conceptual design and agreement within three days • Planning to anticipate problems and remove constraints • Immediate actions to procure critical items, some at the expense of

other projects • Use of available materials • Contractor’s proposal to string an open power line in a tunnel and

alongside an operating railway line • Cooperation of railway and city authorities • Commencing construction before detailed design completed • Use of statutory emergency powers for access to land • Commissioning team appointed early in the project

aire banks restoration

• Strong cooperation between the sponsor, local authority, police, fire and rescue services during and immediately following the flood event

• Professional competence of all staff • division of the whole flooding problem into subprojects for completion

by teams • Use of the contract provisions pre-arranged for planned works • Competence and willingness of consultants and contractors • regular written briefings to the villagers on proposals and progress,

and a daily multi-agency ‘help caravan’ in the village for residents to get advice and help build personal relationships

railway reinstatement

• Using a contractor where there is an established relationship and a record of cooperative working

• ensuring decision-making is delegated to team managing the incident • establishing a realistic reinstatement programme at the outset and

resisting the inevitable pressure to have the incident site back into operation earlier than can be guaranteed. It is better to plan realistically and with a fair wind deliver early than the other way around

• Clarity of responsibilities at the outset • lessons of previous project known to sponsor and contractor • good cooperation with the emergency services and regulator • Both parties immediately appointed a strong team • Sponsor’s project manager kept communication lines simple so that the

contractor had few other parties to deal with • appointment of a contractor with all the responsibility and the

necessary skills to complete the full work scope • team-building between all main parties • a realistic programme at the outset to take the pressure off staff who

were highly stressed • employment of one contractor facilitated integrated planning so that

some over-head line and signalling and telecommunications work could start during track work

Table 5.2 The twelve cases: Managerial and engineering decisions (continued)

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PrOjeCt IMPleMentatIOn 45

Case Decision critical to success 9/11 pile removal

• the Mayor and advisers supported the lead taken by their department of design and Construction

• the department first estimated that the project would take a year and cost $1 billion. this was a shock to the City authorities, but when accepted provided the cover for the quick calls for resources needed to meet the emerging demands of the search and rescue work

• employing known capable contractors • agreement on reimbursable contract terms of payment • Close relationships with the media • exceptional safety procedures agreed for certain conditions, temporarily,

with employees and all parties including enforcement agencies

Many of these decisions stated to have been critical to success were recorded in terms specific to a project. From them emerge these recurrent themes:

• Early recognition of managing the urgent work as a project.

• Dedication of full-time leadership and coordination.

• Attention to all potential stakeholders, including the media.

• Employing known, capable resources.

• Team-building of teams not located together.

• Location of project leadership at the work.

• Work packaging to suit resources able to start immediately.

• Adapting procedures to urgency.

• Preparation for handing over to asset users.

Convergence on normal Practice

The twelve cases exhibited a variety of stakeholder structures, project team organization and deployment of resources. This variety was contingent on the sponsors’ roles and resources and on the conditions of urgency and

Table 5.2 The twelve cases: Managerial and engineering decisions (concluded)

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ManagIng the Urgent and UnexPeCted46

unexpectedness of the work. These projects were started differently from the norm in their industries. Once started, the sponsors mixed innovative and established procedures to achieve speed in getting resources and managing their use.

note

The analysis of stakeholder relationships in this chapter is based upon Wearne, S.H., Management of urgent emergency engineering projects, Proceedings of the Institution of Civil Engineers – Municipal Engineer, 2002, 151(4), 255–63; reprinted in IEEE Engineering Management Review, 2005, 33(3), 21–31.

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Part II

Analysis

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