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Procurement of Construction Services
Management Response
Audit Committee Meeting
March 24, 2017
Overview
This report is the second of two Auditor General reports
related to paving tendering practices.
The focus of this report is on fair contracting practices and
identifies warning signs that could indicate collusive
activities among contractors.
The Auditor’s report identifies recommendations to help
ensure fair and competitive procurement process to obtain
best value for money and fair market prices.
2
Building a Culture of Continuous Improvement
3
• The Auditor General’s oversight and review of current practices
supports continuous improvement.
Oversight and
Review
• The City Manager’s Office, Transportation Services and Purchasing
& Materials Management teams took the investigation seriously
and worked with the Auditor General’s Office to identify issues
and take corrective action.
Audit of Issues &
Corrective Action
• Highlights serious issues and the need for relentless diligence to
ensure responsiveness does not take precedence over the City's
ability to achieve value for money.
Value for Money
Management Response
4
Extensive Investigation
• Consultation with subject matter
experts.
• Detailed review of practices,
policies and the actions of staff
and management.
Corrective Actions
• City Council approved the Toronto
Public Service & Purchasing by-laws.
• Transfer of resurfacing program to
Engineering and Construction
Services.
• Address policy and process gaps,
including change management &
escalation protocols, tracking
database.
• Implement comprehensive training
program.
• Ensure appropriate oversight.
Ongoing Assessment
• Continue to assess the
effectiveness of early actions.
• Continue to monitor and promote
culture change within the
organization.
Safeguard the Public Interest Limit Risk Ensure Value for Money
Transportation Services Actions
Completed and Underway
Analysis
• Unbalanced bidding
analysis.
• Early identification of
variances.
Rotation
• Regular rotation of
program and staff
assignments.
Training
• Ongoing and rigorous
training for staff and
management.
Oversight and
Accountability
Measures
• Harmonize and
implement additional
accountability measures
to estimating, tendering
and documentation
practices.
5
Oversight and Accountability Measures
Standardize estimation and
tendering process.
Implement validation
process and third party
review to ensure tracking
and accountability.
Mandate more
comprehensive
documentation processes.
Implement an items
overruns/under justification
report.
Revise signing authority
thresholds to ensure
appropriate management
oversight and financial
control.
Develop and require use of
master bid list, standardized
contract template and
engineering estimate
methodology form.
6
Transportation Services
Staff and Management Training
Trained staff on
standardized estimating
procedures and
templates.
Held two mandatory
information sessions for
staff in 2016.
Delivered by the Auditor
General.
Attended by 381 union
and non-union staff.
Upcoming - two
mandatory contract
Change Management
sessions for all 216
management staff.
Eight sessions total over
May and June 2017.
7
Transportation Services
Staff and Program Rotations
Rotated inspection and
supervisory staff to
new posts in other
districts to improve
consistent delivery and
reset staff/contractor
working relationships.
Rotated District Road
Operations Managers
(June 2016) to manage
staff and contractors in
another District.
Centralized delivery of
local road resurfacing
program by transferring
four district programs
to ECS effective Jan 1,
2017.
8
Unbalanced Bidding Analysis
Reviewed all
contracts awarded
from 2010 to 2015
to identify
variances.
Developed an
unbalanced
bidding analysis
procedure with
PMMD.Conducted
reverse bid
analysis for all
2016 contracts.
9
Results of 2016 Reverse Bid Analysis
Total differential in
cost for all 10 was
approx. $586K—or
0.4% of the total
dollar amount for
all 83 contracts.
Reasons for
quantity
changes were
deemed justified
(e.g., emergency
work, site
impacts).
10 of 83
warranted
additional
review.
Reviewed 83
contracts across
four districts
with a total
value of over
$146M.
10
Transportation Services
Organizational
Review
Best Practices
Review
Highest quality
customer service
at best value for
money
Additional review
of policies,
practices,
accountability
measures
CONTINUED
ORGANIZATIONAL
IMPROVEMENT
11
Purchasing and Materials Management Actions
Three large business transformations to help change and
improve the procurement process for the entire organization:
By-law, policy and
procedure changes
Technology changes
Organizational
changes
12
By-Law, Policy and Procedure Changes
13
By-Law
• Revised Purchasing By-law
adopted by Council July, 2016.
Implemented Jan 1, 2017.
• Introduced Supplier Code of
Conduct.
• Gives authority to Chief
Purchasing Official to suspend
suppliers who violate Supplier
Code of Conduct.
Policy & Procedures
• Unbalanced Bidding Provision in
the Procurement Processes Policy.
• Template changes allowing
Bidders to declare all potential
conflicts of interest including
hiring of any former or current
City employees.
• New Evaluation Team Procedure
requiring all staff involved to sign
conflict of interest form.
Bidding Analysis
• New Unbalanced Bidding Analysis
Procedure.
• Developed in consultation with
Transportation Services.
• Applied to all 2016 Transportation
Services calls to identify
materially unbalanced bids.
• Being rolled out to all types of
calls over 2017.
Technology Change
• Implementing a centralized cloud-based eProcurement system
using SAP Ariba.
Supply Chain
Transformation Project
• Allows for faster evaluation and supports unbalanced bidding
analysis.
• Provides for centralization of information to conduct trend
analysis, provide better reporting on spend against contract data
and on supplier performance.
Online Bid
Submissions
• Implementation of the centralized database through the SAP
Ariba sourcing module scheduled for Q1, 2018.
• Full implementation of all functionality by Q4, 2018.
Q1 Implementation
14
Organizational Change
15
Strategic Approach
• PMMD Program Review.
• Organizational shift from tactical
services to value added strategic
services.
• Better use of market and spend
data by bringing in Category
Management and Strategic
Sourcing.
Better Analysis & Data
• Additional resource capacity.
• Analysis on market and spend
data.
• Policy and compliance support.
Training
• Better training to staff involved in
the procurement process from end
to end including contract
management.
• PMMD will continue to invite the
Competition Bureau in to provide
training on bid-rigging warning
signs.
Next Steps for Continuous Improvement
16
Transportation Services
• Cascade program and practice improvements to
other program areas including the Utility Cut
Repair Program.
• Assess outcomes of staff training and
accountability measures and modify as needed.
• Implement organizational review and org
structure changes.
Purchasing and Materials Management
• Continue to cascade changes and
improvements to Purchasing By-law throughout
the City.
• Continue to engage Competition Bureau for
training.
• Continue implementation of PMMD Program
Review.
• Continue implementation of Supply Chain
Management Transformation.
Safeguard the Public Interest Limit Risk Ensure Value for Money
Thank you
17

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2017.AU8.3 Background: Procurement of Construction Services Management Response

  • 1. Procurement of Construction Services Management Response Audit Committee Meeting March 24, 2017
  • 2. Overview This report is the second of two Auditor General reports related to paving tendering practices. The focus of this report is on fair contracting practices and identifies warning signs that could indicate collusive activities among contractors. The Auditor’s report identifies recommendations to help ensure fair and competitive procurement process to obtain best value for money and fair market prices. 2
  • 3. Building a Culture of Continuous Improvement 3 • The Auditor General’s oversight and review of current practices supports continuous improvement. Oversight and Review • The City Manager’s Office, Transportation Services and Purchasing & Materials Management teams took the investigation seriously and worked with the Auditor General’s Office to identify issues and take corrective action. Audit of Issues & Corrective Action • Highlights serious issues and the need for relentless diligence to ensure responsiveness does not take precedence over the City's ability to achieve value for money. Value for Money
  • 4. Management Response 4 Extensive Investigation • Consultation with subject matter experts. • Detailed review of practices, policies and the actions of staff and management. Corrective Actions • City Council approved the Toronto Public Service & Purchasing by-laws. • Transfer of resurfacing program to Engineering and Construction Services. • Address policy and process gaps, including change management & escalation protocols, tracking database. • Implement comprehensive training program. • Ensure appropriate oversight. Ongoing Assessment • Continue to assess the effectiveness of early actions. • Continue to monitor and promote culture change within the organization. Safeguard the Public Interest Limit Risk Ensure Value for Money
  • 5. Transportation Services Actions Completed and Underway Analysis • Unbalanced bidding analysis. • Early identification of variances. Rotation • Regular rotation of program and staff assignments. Training • Ongoing and rigorous training for staff and management. Oversight and Accountability Measures • Harmonize and implement additional accountability measures to estimating, tendering and documentation practices. 5
  • 6. Oversight and Accountability Measures Standardize estimation and tendering process. Implement validation process and third party review to ensure tracking and accountability. Mandate more comprehensive documentation processes. Implement an items overruns/under justification report. Revise signing authority thresholds to ensure appropriate management oversight and financial control. Develop and require use of master bid list, standardized contract template and engineering estimate methodology form. 6
  • 7. Transportation Services Staff and Management Training Trained staff on standardized estimating procedures and templates. Held two mandatory information sessions for staff in 2016. Delivered by the Auditor General. Attended by 381 union and non-union staff. Upcoming - two mandatory contract Change Management sessions for all 216 management staff. Eight sessions total over May and June 2017. 7
  • 8. Transportation Services Staff and Program Rotations Rotated inspection and supervisory staff to new posts in other districts to improve consistent delivery and reset staff/contractor working relationships. Rotated District Road Operations Managers (June 2016) to manage staff and contractors in another District. Centralized delivery of local road resurfacing program by transferring four district programs to ECS effective Jan 1, 2017. 8
  • 9. Unbalanced Bidding Analysis Reviewed all contracts awarded from 2010 to 2015 to identify variances. Developed an unbalanced bidding analysis procedure with PMMD.Conducted reverse bid analysis for all 2016 contracts. 9
  • 10. Results of 2016 Reverse Bid Analysis Total differential in cost for all 10 was approx. $586K—or 0.4% of the total dollar amount for all 83 contracts. Reasons for quantity changes were deemed justified (e.g., emergency work, site impacts). 10 of 83 warranted additional review. Reviewed 83 contracts across four districts with a total value of over $146M. 10
  • 11. Transportation Services Organizational Review Best Practices Review Highest quality customer service at best value for money Additional review of policies, practices, accountability measures CONTINUED ORGANIZATIONAL IMPROVEMENT 11
  • 12. Purchasing and Materials Management Actions Three large business transformations to help change and improve the procurement process for the entire organization: By-law, policy and procedure changes Technology changes Organizational changes 12
  • 13. By-Law, Policy and Procedure Changes 13 By-Law • Revised Purchasing By-law adopted by Council July, 2016. Implemented Jan 1, 2017. • Introduced Supplier Code of Conduct. • Gives authority to Chief Purchasing Official to suspend suppliers who violate Supplier Code of Conduct. Policy & Procedures • Unbalanced Bidding Provision in the Procurement Processes Policy. • Template changes allowing Bidders to declare all potential conflicts of interest including hiring of any former or current City employees. • New Evaluation Team Procedure requiring all staff involved to sign conflict of interest form. Bidding Analysis • New Unbalanced Bidding Analysis Procedure. • Developed in consultation with Transportation Services. • Applied to all 2016 Transportation Services calls to identify materially unbalanced bids. • Being rolled out to all types of calls over 2017.
  • 14. Technology Change • Implementing a centralized cloud-based eProcurement system using SAP Ariba. Supply Chain Transformation Project • Allows for faster evaluation and supports unbalanced bidding analysis. • Provides for centralization of information to conduct trend analysis, provide better reporting on spend against contract data and on supplier performance. Online Bid Submissions • Implementation of the centralized database through the SAP Ariba sourcing module scheduled for Q1, 2018. • Full implementation of all functionality by Q4, 2018. Q1 Implementation 14
  • 15. Organizational Change 15 Strategic Approach • PMMD Program Review. • Organizational shift from tactical services to value added strategic services. • Better use of market and spend data by bringing in Category Management and Strategic Sourcing. Better Analysis & Data • Additional resource capacity. • Analysis on market and spend data. • Policy and compliance support. Training • Better training to staff involved in the procurement process from end to end including contract management. • PMMD will continue to invite the Competition Bureau in to provide training on bid-rigging warning signs.
  • 16. Next Steps for Continuous Improvement 16 Transportation Services • Cascade program and practice improvements to other program areas including the Utility Cut Repair Program. • Assess outcomes of staff training and accountability measures and modify as needed. • Implement organizational review and org structure changes. Purchasing and Materials Management • Continue to cascade changes and improvements to Purchasing By-law throughout the City. • Continue to engage Competition Bureau for training. • Continue implementation of PMMD Program Review. • Continue implementation of Supply Chain Management Transformation. Safeguard the Public Interest Limit Risk Ensure Value for Money