G a t e w a y T... Provision of modular construction works at Charlie Chaplin Adventure Playground

Gateway Three
Officer Delegated Decision Report - Procurement
For All Procurement Awards, Waivers, Contract Extensions & Variations
Contract Requisition Number
Provision of modular construction works at
Charlie Chaplin Adventure Playground
Wards
Oval
Report authorised by: (Debbie Jones – Executive Director)
Report Prepared and Submitted by:
Stuart Dixon, Senior Project Manager, BSF,
Lead officer’s name title,
Sixth Floor, International House, Canterbury Crescent, London, SW9 7QE
address and phone number: Phone: 020 7926 3208
Email: [email protected]
Is this report for a request to recommend approval for a waiver to procurement rules?
Yes
No
PB Date:
SPB Date:
Department:
Gateway 1 date (if relevant)
Gateway 2 date
Business unit code
Business unit:
Name, phone and mobile
numbers of presenter:
Off-line
N/A
CYPS
475.9998.C300001187
BSF
N/A
Executive Summary
The report seeks approval to appoint Portakabin Limited as a design and build contractor to provide a
‘Portakabin’ (‘Ultima’ ® Portakabin unit) within the grounds of the Charlie Chaplin Adventure Playground site
in Kennington. The appointment follows a tendering exercise, which was conducted in consultation with
colleagues from Corporate Commissioning. A waiver to the Council’s Contract Standing Order 8.1 is sought
on grounds of inviting tenders from three instead of five tenderers. The reason for this was that the time
constraints did not allow Council the opportunity to find additional tenderers with experience of working within
an adventure playground setting with older children with on the ASD spectrum. If the Council did not seek
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
1
this waiver and failed to meet the external deadline to be contractually engaged the end of the 2010/2011
financial year, external grant funding of £241,000 would be lost to the authority.
The contractor will be required to install a ‘Portakabin type’ modular construction building of approximately
12m x 10m in accordance with the detailed specifications developed in conjunction with the staff, Board of
Trustees of Charlie Chaplin and the parents and children who use the adventure playground.
Portakabin Limited scored 92 out of a possible 100 points in accordance with the tender evaluation criteria
as set out in the tender brief. The tenders were evaluated on a 60% price, 40% quality basis. Tenders were
sent to the three specialist contractors. Of the 3 companies invited, 2 companies submitted tenders within
the specified timeframe. Due to the additional needs of client group who use Charlie Chaplin (Children and
older teenagers with Autistic Spectrum Disorder), all three companies were given the opportunity to visit and
meet with staff so as to better understand the context of the community prior to being asked if they wished to
tender. Following these visits, all three companies expressed an interest in tendering. The tender evaluation
matrix is attached as Appendix 1.
Summary of Financial Implication
This waiver is urgently sought, as the funding is external capital funding-stream that will be lost to the
Council if it is not committed before the end of March 2011. This required the Council to be contractually
engaged by that date.
The Charlie Chaplin Adventure Playground project is part of a wider programme, which is fully funded by the
CYPS Children with Disabilities Team within the cost code 475.9998 capital code C300001187 as part of the
aforementioned DfE ‘Aiming High for Disabled Children’ capital grant funding allocation to the authority.
The Grant is made under sections 14(1) subsections (2)(b), (2)(j) and (2)(k) of the Education Act 2002 for the
purpose of securing equipment, building adaptations, and new facilities that will support disabled children’s
short break provision, the total value of funding for 2010/11 £466.800K.
The construction, delivery to site and connection of services to the portakabin totals £200,680 excluding
contingencies. This is within the available grant budget. Contingency funding from within the same grant
budget is set aside to deal with any unforeseen circumstances which may require potential additional works
arising from the construction on an enclosed site that will have to remain in partial operation during the
construction period.
Reason for Exemption from Disclosure
This report is Part 1 of a 2 part report. Part 2 is exempt from disclosure by virtue of the following paragraphs
of Schedule 12A to the Local Government Act 1972:
“Information relating to the financial or business affairs of any person (including the authority holding that
information) is exempt from publication.”
The reasons for confidentiality are:
•
Details of the bids and pricing schedules reveal information on individual companies that is provided
in confidence to the Council during the procurement exercise. No approval has been sought by all
tenderers to release this information.
•
Benchmarking information provided on a confidential basis
•
Confidential information relating to a company.
Recommendations
1. That the Council waives Contract Standing Order 8.1 and appoints Portakabin Limited as the main
contractor for the supply and installation of a ‘Portakabin type’ modular unit and associated
landscaping at Charlie Chaplin Adventure Playground.
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
2
2. That the Procurement Board permits the expenditure of up to 15% of the overall works budget value
(£30,102 in total) for any contingency items which arise during the construction period.
Approvals
I have seen this report and approve it for onward submission to PB and or SPB:
Signature _______________________________________
Date ________________
Mike Pocock
Director - Building Schools for the Future
I approve the above recommendations:
Signature _______________________________________
Date ________________
Farrukh Akbar
Head of Departmental Procurement Board
Delegated Authority
We approve the above recommendations:
Signature _______________________________________
Date ________________
Mike Pocock
Director - Building Schools for the Future
Signature _______________________________________
Date ________________
Farrukh Akbar
Divisional Director of Resources
Please be sure to complete the signatory information (name and title) above.
Declarations of Interest (or exemptions granted): Yes
Interest or Exemption
None
Declaring Officer’s Name
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
3
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
4
Name
of
consulted
person
Department or
Organisation
Date sent
Date response
received
Report section
reference
Department of
Legal and
Democratic
Services
24/03/2011
30/03/2011
Throughout report
CYPS
23/03/2011
25/03/2011
Throughout
CYPS
23/03/2011
28/03/2011
7.0
CYPS
20 / 3 / 2011
25/03/2011
7.0
Cllr Pete Robbins
CYPS Cabinet
Member
24/3/2011
30/03/2011
Throughout
Victor Ruskin
Procurement
24/03/2011
25/03/2011
Throughout
Internal
Andrew Pavlou / Peter
Flockhart
Charles Booth
Assistant Director - BSF
Dunni Komolafe
Head of Departmental
Finance- CYPS
Solomon Akuffo
Divisional Finance
Manager
External
None
Report History
Is this a Key Decision (£500k+), a Non-Key
Decision or For Information?
If a Key Decision (£500k+), enter the date it was
first entered into the Forward Plan:
Key Decision
Non-Key Decision
For Information
N/A
Background Documents
None
Previous Reports
Gateway 1 10.08.2010
Gateway 2 19.10.2010
Appendices
Tender Evaluation Matrix
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
5
1.0
Context
1.1
Charlie Chaplin Adventure Playground is a unique resource for children with disabilities and special
educational needs. It is located in Kennington very near to Kennington Park. Established in 1983, it
has over a quarter of a century’s experience in providing quality play for children and families who
use the specialist services that their staff are able to provide.
1.2
Surveys conducted at the Charlie Chaplin site identified areas of concern regarding the existing
building resources; the Assistant Director of Children’s Community Services and the Assistant
Director of BSF backed this. These concerns include health & safety, environmental and hygiene
problems. It was agreed that the existing facility does not have adequate space to provide dining
facilities for children with disabilities.
1.3
Allocations were only confirmed at the end of November 2010 leaving a very tight timescale for
consultation with Charlie Chaplin on the design brief. Further correspondence with DfE highlighted
st
that there will be no provision to carry over any unspent funding beyond 31 March 2011; therefore it
is essential that contractors are commissioned to deliver a solution by the end of this financial year.
1.4
Taking into consideration the need for this resource, the financial urgency to commit the allocated
st
funding before 31 March 2011, and the requirement to commission a contractor with specialist
experience of not only of building child friendly structures but also of working with children with
special needs, three specialist contractors were approached to tender.
1.3
The proposed solution has been agreed with Charlie Chaplin’s Director and Board of Trustees
following a series of presentations to both the Board of Trustees and a group of the playground’s
users including children, parents and carers.
1.4
The ‘building’ is a single modular construction unit, prefabricated off-site to allow for a short
construction phase of six weeks. This is so as to provide minimal interference with the activities of
the centre. It will provide badly needed additional facilities to accommodate the increased numbers
of children using the playground. The facilities include a kitchen, dining/multi-function area, two
disabled toilets / changing rooms and two storerooms. The costs for the scheme cover design work,
all statutory costs including the relevant surveys and planning fees.
2.0
Proposals & Reasons
3. 2.1
A tendering exercise for the appointment of a contractor able to deliver a design and build
modular construction solution, which would be prefabricated off-site, to allow for quick installation,
was undertaken. However, due to urgency a waiver is now sought from the requirement to comply
with Contract Standing Order 8.1.The reason for seeking a waiver is that the council invited tenders
from three instead of five tenderers. The reason for this was that the time constraints did not allow
Council the time to find additional tenderers with experience of working within an adventure
playground setting, with older children on the ASD spectrum. If the Council did not seek this waiver
and failed to meet the external funding body’s deadline (to be contractually engaged the end of the
2010/2011 financial year), then external grant funding of £241,000 would be lost to the authority.
2.2
In view of the specialist nature of the commission, the needs of the client group and the imperative to
deliver a prefabricated solution within the time constraints of the funding deadline, it was necessary
to approach specialist contractors. Three contractors were identified. All three had carried out
previous work in the Borough and had indicated (after visiting the Charlie Chaplin site and discussing
the project with staff) that they would be interested to tender for a project. Because of the nature of
this project, it was necessary to seek advice from Corporate Procurement. It was agreed that a
minimum of 3 contractors could be issued ITTs, these were Muf Architects, Portakabin Limited and
EcoSpace. However one of the bidders withdrew from the process the day before the tenders were
due, citing time constraints. Therefore, a decision was taken to move the return date forward to allow
more time for all contractors to submit tenders.
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
6
2.3
All suppliers were contacted and made aware that the submission date had been moved forward by
an additional 3 days. Unfortunately, despite this one bidder still failed to submit a tender. Therefore
as advised by procurement evaluation the scoring was carried out with the two remaining tenders
received. The criteria on the evaluation matrix were developed using the contract specification, with
scoring based on a 60/40 price to quality weighting. Although competition was reduced due to the
unforeseen withdrawal of one of the potential bidders, the evaluation process was conducted
thoroughly and involved a scoring panel of four including the Director of Charlie Chaplin Adventure
Playground, the BSF Divisional Finance Manager, the CYPS Play & Sports Project Manager and a
BSF Senior Project Manager.
2.4
This tendering exercise was carried out in accordance with competition procedures with three
companies being asked to submit tenders. Two tenders were received before the deadline.
2.5
The tender specifications addressed key priority areas identified in conjunction with Charlie Chaplin
staff and Trustees to best meet the outcomes of the overall Aiming High for Disabled Children
programme. These are to enable inclusive access for children and young people with mobility /
disability/ sensory needs to universal services (that are evidenced to be over and above normal
Disability Discrimination Act (DDA) requirements) and support specialist service providers of short
breaks.
2.6
The two tender prices received were as follows:
MUF Architecture with Wood Newton / Atelier
One
Portakabin Ltd
£202,635
£200,680
2.7
As Portakabin Ltd provided the required method statements and the lowest tender price; they have
scored the highest score. The tender evaluation matrix gives a detailed assessment of the
Portakabin Ltd tender in comparison to the other tender.
2.8
The costs submitted with Portakabin Ltd tender have been arithmetically checked and there are no
errors. Portakabin Ltd have also provided a full programme of work. There are important deadlines
for the projects as there are play activities planned on particular dates, which are linked to service
level agreements. The programme submitted with the Portakabin Ltd tender confirms that they are
able to meet the required completion deadlines and work around the service planning requirements
of the Charlie Chaplin staff.
3.0
Value for Money
3.1
The tendering process has confirmed that the price from Portakabin Ltd is very competitive. A full
analysis of the Portakabin Ltd tender in comparison to the other tenders received is given in the
tender report matrix. This entire project has been commissioned to ensure that the authority does not
st
lose capital due to it not being committed prior to 31 March 2011. As highlighted by DfE in 2010,
st
there are no provisions to carry over unspent funding beyond 31 March 2011.
3.2
The over-riding principles governing the recommendation include but are not restricted to:
•
•
•
•
•
•
•
The Tender has a good understanding of the developments required by the Aiming High for
Disabled Children Capital programme.
The Tender provides a holistic locality and integrated approach to delivery of services for
children with disabilities.
Good track record of technical abilities and delivery, and confidence that the developments
and services can be delivered by the due date.
Established knowledge and experience of working with children with disabilities and their
families in Lambeth.
Assurance that developments will meet recognised quality standards.
The proposal represents best value for money.
Sustainability of the proposal.
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
7
3.3
An engagement event was held with parents/carers, staff and children to elicit feedback from all
stakeholders on this project.
3.4
There are approximately 2000 children with a disability in Lambeth. The commonest disorders are
communication disorders, moderate/severe learning disability and autism. Co-morbidities are
common e.g. visual/hearing problems associated with learning disability. Compared to London and
England, Lambeth appears to have a higher proportion of autistic children, and children with
communication disorders. Parents and children through on-going engagement have clearly identified
a need for better access to community based sports, play and leisure services – the barriers
currently relate to a range of factors, including location and access to (affordable) transport, and
concerns about the ability of providers to effectively include children with severe disabilities in
universal settings. This project will directly address those concerns.
4.0
Cashable Savings
4.1
As this commission is the result of a bespoke one-off tendering exercise, there are no achievable
cashable savings.
5.0
Non-cashable Savings
5.1
N/A
6.0
Volume Reduction
6.1
N/A
7.0
A total sum of £231,000 is available which is fully funded by the CYPS Children with Disabilities
Team within the cost code 475.9998 capital code C300001187as part of the DfE ‘Aiming High for
Disabled Children’ capital grant funding allocation to the authority.
8.0
Comments from Director of Governance & Democracy
8.1
Legal comments are contained within the body of this report.
9.0
Results of Scrutiny and Consultation Views
9.1
As the contract is valued at less than £500k the report has not been forwarded to the Chair of the
Overview & Scrutiny Committee.
10.0
Organisational Implications
Risk Management
This project was tendered to meet the design and build requirement for a modular construction and
has been evaluated to achieve that need. Prior to tendering, a detailed specification was drafted to
ensure that all project needs would meet.
A detailed project risk register has been developed, and will continue to be monitored and updated
as the project progresses.
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
8
Risk
Unforeseen
circumstances
on site lead to
additional works
Probability
Impact
Low
Medium
Low
Low
Contractor fails
to deliver works
within budget
Low
Medium
Materials are
late coming to
site.
Low
High
Theft or
vandalism of
property during
construction
Mitigation
The site has already been subject to
improvements in the past. Whilst it is possible
that there are unknown services. A budget
contingency is also held specifically to cover
such eventualities.
The Adventure Playground is a gated area,
which are locked both during night time hours
and due to Safeguarding requirements during
working hours. The contractor is also required to
maintain an insurance policy to cover such
eventualities.
Portakabin Ltd is a reputable firm who have
delivered successfully on other similar schemes.
The contract is a fixed price contract.
The lead in times for a ‘portakabin’ are fixed to a
period not exceeding six weeks and are
constructed off site before being craned into
position.
11.0
Equalities Impact Assessment
11.1
An EIA has been completed for the Primary & Community Programme. This rates all such building
projects as LOW. There are no equalities impacts directly relating to this procurement. The design of
the portakabin has taken into consideration access issues for those people who may be physically
impaired. Appropriate actions have been taken to mitigate any negative impact.
11.2
The full Equality Impact assessment is available on request.
12.0
Community Safety Implications
12.1
There are no direct community safety implications directly relating to this project which is a play
space that is kept securely locked during both working and non-working hours and is surrounded by
3m high perimeter fencing. Public confidence in accessing universal settings by children and young
people with disabilities is a key issue in Lambeth as highlighted in the consultation carried as part of
the AHDC programme, and which the Aiming High for Disabled Children Capital Grants Programme
aims to address. The Capital Grant programme will be directly linked to wider training and capacity
building initiatives including some that will improve parents’ confidence and challenge negative
perceptions of what is possible.
13.0
Responsible Procurement Implications
13.1
There are no obvious barriers to services being provided, either in terms of equality and diversity or
the way services will be delivered. The portakabin design meets the requirements of the Disability
Discrimination Act (1995), Race Relations Act (2000), environmental management and the
requirements of current Health and Safety legislation.
13.2
It was necessary to seek advice from Corporate Procurement to conduct commissioning using an
slightly unorthodox process. As such, a minimum quantity of potential bidders had been invited to
tender for this project, which allowed the contract to be awarded to a specialist supplier within the
time boundaries required by external capital funding rules. Because these procurement measures
were adopted, the Council can appropriately commit vital external capital funding from the DfE.
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
9
14.0
Staffing & Accommodation Implications
14.1
There are no staffing or accommodation issues related to this contract.
15.0
Any Other Implications
15.1
Informal advice from planning officers indicates that the scheme might proceed as permitted
development. But even if this were not to be the case, officers would proceed at risk having made
allowances for a minor application and a provisional sum is allowed within the contract to cover this
eventuality.
16.0
Contract Management & Monitoring
16.1
The contract will be managed by an Assistant Project Manager from within the CYPS BSF Primary
and Community Team in conjunction with the Project Manager for Play and Sports.
16.2
While technical issues will be addressed through weekly or fortnightly issues between the contractor
and the Assistant Project Manager, any timetable implications will be discussed with the Chair of the
Board of Trustees of Charlie Chaplin and the Director of the organisation. However, given the shortterm nature of the project (six weeks on site), it is not proposed to undertake any formal contract
review or monitoring other than post contract review.
17.0
Timetable for Implementation
17.1
The table below shows the stages, milestones and deadlines for implementing the contract.
No.
1
2
3
4
5
6
18.0
Item Description
Contract Finalised
Start of works at off-site
Start of works on site
Portakabin delivery
Practical Completion of works
Completion of 12 month defects liability period
Due Date
30/03/2011
31/03/2011
18/04/2011
24/05/2011
13/06/2011
13/06/2012
Appendixes
Tender Evaluation Matrix
Officer Delegated Decision Report - Procurement
Corporate Procurement Team
V9 – 4 October 2010
10