2007年-世界发展银行全球_Local_Stakeholders_Perception_Survey_160页_1mb

Summary of the Local Stakeholders' Perception Survey (PIICA Technical Note 2)

Objective

The objective of this survey was to identify key issues in the implementation of large infrastructure projects in Pakistan by gathering input from key stakeholders in the construction industry, including consultants, clients, and contractors. The aim was to compare these stakeholder perceptions with the main problems identified in the construction industry and to prioritize areas for improvement.

Methodology

Gallup Pakistan conducted the survey with a sample size of 104 participants, comprising:

• 11% clients
• 35% consultants
• 55% contractors

The survey was designed through focus group discussions involving representatives from all three stakeholder groups. A quota purposive sampling method was used to ensure representation across different subgroups. The sample was selected from a comprehensive list of consultants and contractors provided by the Pakistan Engineering Council (PEC). The survey also included a few dominant firms to ensure their input was reflected.

Core Content

Main Issues Identified

1. Equipment Constraints

• Contractors and consultants generally reported that their equipment capacity is limited, affecting their ability to deliver quality work on time.
• The lack of investment in equipment is attributed to financial constraints and uncertain business prospects.
• A few international companies and the Frontier Works Organization (FWO) are exceptions, as they have better equipment and practices.
• The industry believes that addressing the root causes of financial shortages and improving facilities will help resolve this issue.

2. Material Constraints

• High and rising costs of energy and materials, particularly cement, steel, bitumen, and fuel, are seen as major constraints.
• The absence of effective monopoly control mechanisms and fair pricing practices contributes to unfair price escalation.
• This leads to disputes and delays in projects, especially in the absence of robust dispute resolution mechanisms.

3. Human Resource Constraints

• There is a general consensus that the quality of human resources in the construction industry is poor.
• This is due to inadequate training, low wages, and an inhospitable professional environment.
• The lack of competitive salary structures and poor contract management practices, especially the lowest price bid method, hinders the ability to invest in HR development.
• Stakeholders expressed strong support for inviting foreign companies to collaborate, especially through joint ventures, to bring in new technologies and professional management techniques.
• However, some contractors expressed skepticism about the technical capabilities and business ethics of certain foreign entities.

4. Business Environment Constraints

• Contractors and consultants highlighted the inadequacies in the business environment, particularly in contract management and financing facilities.
• The absence of regulatory reforms and ineffective government policy interventions are seen as major contributors to the problems.
• Issues such as non-transparent procurement rules, complex prequalification procedures, and delayed payments were identified as key obstacles.
• There is a call for more transparent and standardized procurement processes.

Key Recommendations

1. Regulatory Reforms

• The implementation of FIDIC contracts in both letter and spirit is recommended to reduce unilateral client discretion and promote fair practices.
• A multi-stage grievance redressing mechanism is needed to protect bidders and ensure accountability.
• Uniform procurement rules across all client agencies are essential to streamline processes.

2. Financial Reforms

• The lack of specialized financial facilities for the construction industry leads to a shortage of funds.
• There is a need for comprehensive reforms in banking, leasing, and insurance regulations.
• The exclusive use of bank guarantees without alternatives like insurance guarantees is a source of perennial cash flow issues.

3. Institutional Reforms

• Establishment of a Construction Industry Development Board (CIDB): Inspired by Malaysia and Singapore, this board could help with planning and forecasting demand.
• Technical Cadre of Auditors: A new generation of auditors with specialized knowledge in the construction industry is needed to address delays and corruption.
• Independent Ombudsmen Organization: This would help in adjudicating procurement and administrative disputes, reducing the time spent on resolution.
• One-Window Operation for Enlistment: Uniform enlistment procedures and criteria across all client agencies are recommended to simplify the process.
• Effective Monopoly Control Institution: The current Monopoly Control Authority (MCA) is seen as ineffective, and stakeholders suggest reforms or its replacement with a more capable entity.

4. Price Review Committee

• A committee comprising P&D, NESPAK, and APCA should be formed to determine current market prices and escalation criteria.
• This would address issues such as resistance to price escalation, insufficient compensations, and reluctance to make bold decisions due to audit and legal risks.

5. Special Bank for the Construction Industry

• 82% of stakeholders recommended the creation of a special bank for the construction industry to address financial needs.

6. Training and Vocational Development

• Training is seen as the most effective solution for improving human resource capabilities.
• The use of existing technical and vocational training institutes like TEVTA is suggested to enhance workforce skills.

Conclusion

The survey highlights significant challenges in the construction industry in Pakistan, particularly in the areas of equipment, materials, human resources, and business environment. Stakeholders believe that these issues can be addressed through a combination of regulatory, financial, and institutional reforms. The establishment of a CIDB, a technical cadre of auditors, and a price review committee are among the key proposed interventions. The industry is hopeful that these reforms will lead to improved implementation capacity and sustainable growth.