Paper presented at African Rhythm Project Management Conference 22 – 24 April 2002, Johannesburg, South Africa Hosted by: Project Management Institute of South Africa (PMISA): www.pmisa.org.za ISBN Number: 0-620-28853-1

MINTIRHO YA VHULA VHULA “ACTIONS SPEAK LOUDER THAN WORDS” -THE NATIONAL DEPARTMENT OF PUBLIC WORKS: REPAIR AND MAINTENANCE PROGRAMME FOR

PRISONS. INCORPORATING GOOD PROJECT MANAGEMENT PRACTICES IN AN AMBITIOUS NATIONAL PROGRAMME

Ottie Ncube1 PMP, Pr. Eng. and David Hodgkinson2 PMP, Pr (Tech) Eng.

1Africon Engineering International (Pty) Ltd. Director: Asset and Project Management Division

P O Box 905, Pretoria, 0001 South Africa, e-mail: ottien@africon.co.za 2Africon Engineering International (Pty) Ltd. Associate: Asset and Project Management Division

P O Box 905, Pretoria, 0001 South Africa, e-mail: daveh@africon.co.za 1. INTRODUCTION The National Department of Public Works is implementing an ambitious, participative public-private sector programme to ensure the optimum functionality of State-owned facilities. The Department’s Repair and Maintenance Programme (RAMP) is tackling the historic repair backlog, as well as guiding the future repair and maintenance of government facilities and infrastructure in a planned and cost-effective manner. Founded upon the slogan “Mintirho ya Vula Vula” (Actions speak louder than words), the Repair and Maintenance Programme for Prisons has entered its second year of implementation. Through this paper, some of the more unique challenges required to be met to attain the objectives of the Programme, and which are being successfully achieved through the execution of good project management practices, are presented. 2. OBJECTIVES OF THE REPAIR AND MAINTENANCE PROGRAMME 2.1 Department of Public Works: Vision and Mission Statement The RAMP has been developed to complement the Vision and Mission Statement of the National Department of Public Works. 2.2 Programme Objectives The Programme has been developed to achieve the following main objectives:

• Address and remove the current repair and maintenance backlog. • Formalisation of a repair and maintenance programme, including planning for integration

with other ongoing and future departmental upgrading, operating and maintenance programmes and initiatives.

• Advancement of the implementation of established socio-economic developmental programmes. - Community – based Public Works Programme

o Creation of employment opportunities o Development of human resources

- Construction Industry Development Programme o Growth of the Emerging Sector

- Affirmative Professional Service Providers (APSP) Programme o Engineering focus o Mentorship of Engineering Consultants through practice

Figure 1: The National Department of Public Works: Vision and Mission Statement

3. SCOPE OF THE REPAIR AND MAINTENANCE PROGRAMME FOR PRISONS 3.1 Projects Currently Being Implemented Thirty three projects (i.e. 33 prisons accommodating some 97 000 (60%) of the national inmate population) comprising of some 127 engineering contracts, are currently being implemented on behalf of the National Department of Correctional services, viz:

Group Prisons Contract Value End Date Contracts Engineers 11 8 R290 million Feb, 2004 29 1 2 14 R816 million May, 2004 61 66 3 11 R194 million July, 2004 37 8

TOTAL 33 R1 300 million 1272 753 Notes:

1. Pilot Project 2. Includes 93 Affirmable Business Enterprises (ABEs) 3. Includes 37 Affirmative Professional Service Providers (APSPs)

3.2 Spectrum of Specialist Installations The extent of the more technical scope of the Programme can be illustrated by listing some of the included installations and equipment requiring specialist technology.

• Boilers : 107 • Steam cooking pots : 630 • Cold and freezer rooms : 206 • Security fencing : 252 km • Electronic security fencing : 38 km • Incinerating equipment : 25 • Electrical: Medium and low voltage substations : 96 • Electrical: Standby power generators : 42 • Laundry equipment/appliances : 74 • Plumbing and drainage, sanitary and brassware fixtures : 89 000 • Wastewater treatment works (average 10 Ml/month) : 12

• Roads: gravel : 130 km • Roads: tarred : 180 km

4. UNIQUE ASPECTS REQUIRING INNOVATIVE SOLUTIONS In addition to what have generally become standard items to be managed through a project life cycle, solutions to the following aspects are incorporated in the Programme. 4.1 Generic Documentation Generic documentation developed for The Repair and Maintenance Programme and which is subject to ongoing review and updating, includes the following:

• Existing Asset Inventories - Standardised Field Reports

• Status Quo Reports - Installation inventories - Description of operational state of installations - Cost estimate to repair installations to their optimum state - Cost estimate to maintain installations

• Generic Contract Documentation (Slide 3) - Common Conditions of Contract for all disciplines - Programme Specifications:

o Maintenance (Routine, corrective and break down) o Operating and Maintenance Manuals o Decommissioning, testing and commissioning procedures o Training (Operating, maintenance and ABE business skills) o Development of Affirmable Business Enterprises

4.2 Transfer of Maintenance Risk to the Private Sectors The RAMP facilitates the participative intervention of the private sector in functions that have historically been the responsibility of public services structures. 4.2.1 Procurement Process

• State Tender Board – Public, competitive tenders • Adjudication – Affirmative Procurement Policy (APP) • Award by Department of Public Works (Employer)

4.2.2 Contract Scope

• Repair of facilities to optimum functioning state • Pro-active preventative and corrective maintenance for a period of 36 months • Re-active breakdown repairs/maintenance

4.2.3 Monitoring and Controlling Maintenance Performance The developed maintenance specifications provide a framework which enables the Contractor’s maintenance performance to be monitored on a regular (monthly) basis.

• Single point responsibility: Consultant and Contractor Maintenance Control System

• Maintenance Control Plan • Records of routine, preventative and corrective maintenance • Control of communication and data of breakdown maintenance • Service level appraisal and Contractor performance • Assessment by Score Cards – reduced maintenance payments for performance less than

100% (Figure 3)

Figure 2: Generic Repair and Maintenance Contract Document

Figure 3: Maintenance Score Card

4.2.4 Reactive Breakdown Maintenance/Repair • Maximum response time to repair reported and categorised breakdowns

- Ordinary breakdown (typically 7 days) - Emergency breakdown (typically 48 hours) - Fatal breakdown (immediate response)

• Centralised logging and monitoring of breakdowns and repairs (Item 4.3: Call Centre) • Performance motivation by financial rewards and penalties

4.3 Call Centre A call centre has been established as a key component of the RAMP process and is a long term facility providing multiple benefits to the Department.

• Centralised data base of all relevant details (e.g. prison, contract, Contractor, Engineer, maximum response times, applicable penalties, etc)

• Standardised procedure and lines of communication (Figure 4) • Summary project/contract specific breakdown, repair and penalty reports • Regular overall / Programme reporting • Facility and equipment performance monitoring • Future maintenance budgeting tool

Figure 4: Call Centre: Processes and Lines of Communication

4.4 Operating and Maintenance Manuals Contractors appointed to the RAMP are responsible for the creation of comprehensive Operating and Maintenance Manuals for the installations for which they are responsible.

• What: - Comprehensive details of facilities and equipment - Specifications, drawings and diagrams - Spare parts and components lists - Operating procedures - Maintenance procedures

• Who: - Operation and Maintenance Managers - Supervisors - Implementing personnel

• When - Operating record sheets and logs - Maintenance record sheets and logs - Breakdown records

• Component of training process (Item 4.5: General Training) • Approval as prerequisite for Repair Phase completion

4.5 General Training The Contractor is responsible for the development of training programmes for future operation and maintenance personnel (public and private sector), as well as for the identification of appropriate trainees.

• Development of training programmes and syllabuses • Identification and assessment of trainees

- User Client personnel - Affirmable Business Enterprise managers

• Accredited trainers and training courses • Initial and follow up training • Acquired skills certificates

4.6 Establishment and Development of Affirmable Business Enterprises (ABEs) In line with the objectives of the Department’s socio-economic development programmes, the Contractor is responsible for the establishment and development of an ABE entity to be competent to undertake future maintenance at the prison.

• Purpose – localised, future maintenance contracts • Identification of appropriate individuals/groups • Establishment of business entity • Registration with the Department of Public Works: Sakhasonke Emerging Contractor

Development Programme • Development of business and management skills • “On the job” training and experience

- Minimum 24 months practical involvement - Minimum 20% work value

• Provision of business equipment, tools and materials

4.7 Security and Access Limitations The high importance of maintaining top level security of prison inmates, generally in overcrowded conditions, presents numerous challenges in programming and integrating the works

• Programming the works • Access limitations

- Prison inmate accommodation - Operational facilities - Correctional Services member’s residences

• Access for other Contractors and authorized parties • Integration of disciplines and trades

4.8 Maintaining Effective Communications To be successful, a programme of the nature and scope of the RAMP requires a highly effective communication plan.

• Multiple Client involvement (End-user Client and Programme/Contract Client) • Organisational structure and lines of communication (Slide 5) • Roles and responsibilities • Contract and project management forums

- Technical co-ordination meetings - Contract progress meetings - Project management meetings - Programme management meetings and reports

• Electronic communications - RAMP Website - E-mail

Figure 5: Repair and Maintenance Programme for Prisons – Organisational Structure

5. LESSONS LEARNT It is acknowledged by the management role-players involved in the RAMP that it is a complex process being implemented in a dynamic environment. Lessons learnt during the initial implementation period are subject to assessment and where necessary adjustments/ improvements are incorporated.

• Management of work scope adjustments • Effective involvement of all main role-players • Maintaining high quality of service (a current challenge in South Africa?) • Understanding bureaucratic processes • Planned and unplanned interruptions to access • Contract integration planning

6. EXTENSION AND BROADENING OF THE REPAIR AND MAINTENANCE PROGRAMME

The successes achieved to date through the implementation of the Repair and Maintenance Programme have resulted in the present Prisons Programme being extended to include the balance of inmate facilities in South Africa, and a similar approach having been adopted for the assets and facilities of other Government Departments.

• Group 4 (146) prisons – Status Quo Reports completed • Military bases and airfields • Lifts in all government buildings • Assets and facilities of the Departments of Justice, and Arts, Culture Science and

Technology 7. CONCLUSION The Repair and Maintenance Programme (RAMP) provides a comprehensive and cost-effective approach towards ensuring the optimum functionality of State-owned installations and facilities. With the Programme’s effectiveness having been proven on the projects currently being implemented, the RAMP is being expanded to meet the repair backlogs of other Government Departments, as well as providing a guide for the future repair and maintenance requirements at these facilities. By facilitating pro-active, accelerated and high quality service delivery, the RAMP is enabling the Department of Public Works to execute its mandate timeously, economically and diligently. Ottie Ncube Ottie has been employed by Africon Engineering International (Pty) Ltd (AFRICON) since 1994. Progressing from a technical basis in the Structural Engineering Division, to concentrate on project management, Ottie has for the last 4 years been actively involved at management level with various projects and programmes for the company’s Asset and Project Management Division, of which he is a Director.