Project Execution in EPC/Turnkeys Contracts and

The PM Roles and Responsibilities

AACE International Conference, June 27, 2005 New Orleans, LA

By George E. Baram
P.Eng, M.Eng, PMP, CCE
Fellow AACE International

The high risk exposure during the post contract award phase (execution phase) of EPC
(Engineer, Procure and Construct) Turnkeys or DB (Design Build) projects requires
proper early considerations by project managers to comply with contractual obligations,
expressed and implied, where the project manager assume the leadership and
responsibility in fulfilling them.

Compliance with such contractual issues is the foundation for project success. It sets the
project properly on the right path, excel the relationship with the client, protect the
interest of the project and contribute effectively in avoiding and/or resolving disputes.

Many articles related to Contract and Risk Management are focused on exploring risk
elements at the pre-contract award phase of EPC projects dealing mainly with financial,
insurance, technical and political risks. This article will highlight various contractual post-
award risks and discusses the needs for early and effective response and obligations to
prepare for and be handled during the execution phase.

The focus in this article is on selected number of critical contractual clauses, issues and
challenges as required and experienced by most EPC agreements and often
encountered by project managers throughout the progress of the project.

Lets agree on the fundamentals - What are EPC Contracts?

Definitions, Dilemma and Elements

The EPC Definitions:

One of the current popular project delivery methods in construction contracts is an EPC
contract. EPC stands for Engineer, Procure and Construct contract where one or more
contractors and designers join their efforts to deliver a full and complete facility.
This method of contracting (in some contractual arrangements can be called Turnkey or
Design-Build (DB)) was emerged more aggressively for the last 10 to 15 years as
demanded by the market to divert from the traditional approach of contracting such as
EPCM and Design-Bid-Build (DBB).
In addition to a number of common elements characterizing EPC contracts in general
(discussed in detail in the following sections), two important aspects are attached into
such arrangement: 1) Performance Guarantees by the EPC Contractor are required for
the delivered facility as it fits for its intended purpose under single point responsibility
for the design and construction, 2) in general, the agreement is under fixed and agreed
upon price.
EPC contracting can be understood as a general approach to delivering complete facility
and can be prepared as:
Pure EPC contracting to perform work for an Owner or client in general

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 EPC contracting as part of a full fledge concession agreement, which may
involve BOT (Build Operate Transfer), BOOT (Build Own Operate Transfer) and
other forms.

Also EPC contracting can be performed by:

A contractor with in-house design capabilities
A contractor sub-contracting the design to an engineer or design firm
A Joint venture between a contractor and design firm
EPC contracts branches out into mainly two (possibly more) types of contracts:
Turnkey Contracts
Design-Build Contacts
Other customized arrangements To fit specific needs

Finally, EPC Contracts, for large projects may involve the contractors with some of his
own equity in the project and get into some financial arrangements with lenders. In such
cases, the financial institute or lenders would like to assess the risk factors involved in
the project both technical and commercial. The most common concerns for these
financial institutes, in general are to avoid any new technology (or keep limited
technology), ensure fixed time and fixed cost of the project, ensure performance
guarantees, ensure the existence of LDs (for delays and performance) and limited
liability in the contract.
A typical EPC Structure along with the relevant agreements among the different
stakeholders is illustrated in figure 1 below:

Client

Financial Institutes
Sponsors (Lenders)
Agreement
Concession, JV, BOT, BOOT

Financing and
Equity Support
Project Company Security Agreements
Agreement(s)

O&M Other Contract:

Contract Tolling, PPA,...
EPC Supply
Contract Contract

EPC O&M
Suppliers Other
Contractor Contractor

Design Agreement

Supplies Agreements

Construction
O&M Operation and Maintenance
Agreement
PPA Power Purchase Agreement
JV Joint Venture Agreement
Typical General Contractual Structure involving EPC BOT Build Operate Transfer
BOOT Build Own Operate Transfer
Agreement

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The EPC Dilemma

What differentiates the above branches within the same EPC family is the fine print in
the contract as related to different clauses and more specifically a number of risk
shifting clauses possibly embedded in the contract related to: a) design requirements b)
design approvals and clients involvements (i.e. possible interference) c) design and
performance guarantees d) methods of payment and e) clarity in assigning client v.
contractors responsibilities.

The most common understanding of an EPC contracts especially from the contractors
point of view is that it is a fixed money contract or it is our money and we have the
full freedom to run the project the way we find it fit and profitable to us as long as we
comply with the clients requirements.

While there is nothing wrong with the above statement, one should go one further step
and evaluate the full freedom the contractor thinks he has based on the clients
requirements and contractual agreement.

As being said, the devil is in the detail one should not be mislead by the title of a
contract, or agreement headlines, instead it is the contracts fine print clauses
where the real definition and its consequences lie.

The following excerpt from a book entitled Construction Contracting fifth edition,
Richard H. Clough [4] describes the importance of reading the full contract, and
assessing the risk ahead in getting into an EPC contract.

All construction contract documents are construed together for purposes of contract
interpretation, giving meaning and effect to each part because it is presumed that
everything in the contract was inserted deliberately and for a purpose. In general the
intention of the contracting parties is determined from the final contract executed by
them, rather than from preliminary negotiations and agreements. Contracts are
interpreted strictly and to the letter where possible and feasible under the law. It is
presumed that those who enter into contracts know what they want, say what they mean,
and understand what they have said. It is an accepted rule of law that a person has a
duty to read and understand a contract before executing it, and failure to do so is no
excuse for not rendering proper performance.

The Elements of EPC Contracts:

Advantages / Disadvantages Risks and Rewards

The following table #1 below illustrates a number of well agreed upon advantages and
disadvantages as fairly well publicized, for the last decade, by all kind of practitioners
(including contractors, lawyers, owners, etc.)

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Table 1 Risk Shifting Responsibility for Owner v. Contractor in EPC Contracts
Advantage Disadvantage
Risk Shifting Element in EPC Contract (Rewards) (Risk) Ref

Single Point responsibility for Design and Construction B 1

Earlier knowledge of the total scope, cost & timing of the project B 2
Usually shorter overall delivery period time saving O 3
Risk Transfer Cost risk shifted to contractor B 4
Risk Transfer Schedule risk shifted to contractor O C 5
Risk Transfer - Ability for Fast Tracking construction B 6
Allows for Innovation Value Engineering C 7
Allows for Innovation Constructability C 8
Control of Scope Changes avoid changes O 9
Risk Transfer Equipment supplied by Owners Manufacturers O C 10
Risk Transfer Third party technology O C 11
Risk Transfer Guaranty in performance and workmanship O C 12
Ability to quickly obtain guarantees (Owner) O C 13
Delivering contractually obligated, high quality project O 14
Reduce Management Oversight [3] O 15
Minimize conflicts and disputes [5] O 16
Streamline procurement process C 17
Improve Risk management B 18
O: Owner C: Contractor B: Both

The above table suggests clear apportionment of responsibilities between the two
parties to the EPC contract, However, practically it is difficult to draw the line on these
items even in most well matured contracts such as FIDIC [6] (Orange and Silver books)
and other government contracts including some International.

The EPCs Hidden RISK

Some of the most common disputable items are related to establishing the freedom and
flexibility by the EPC contractor to Engineer-Procure-Construct certain elements of the
project, or the project as a whole, are the following:

Clients Requirements: what is the clients anticipation from such general,

possibly vague requirements. These are the roots for early and costly changes that
neither clear nor anticipated during the bid period but can easily drive the cost of
the project much higher. I.e. as the design is evolving, the continuous
interpretation of what reasonably meets the clients requirements is always a top
and hot issue. This issue is well known in scope management as Scope Creep
or sometimes called Requirement Creep and it is among the hottest disputable
issues during the engineering phase of an EPC project.

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 Design Changes as opposed to Scope changes: A key issue to be watched and
evaluated carefully is distinguishing between Scope Change as a request (by
either party) to change, add or delete certain elements of the project, without any
effects on the design as a whole versus a Design Change as introduced by the
client/consultant with direct considerable effect on the way the design is to be
carried out, hence indirectly triggering changes to the requirements. Such
detection, especially if made early in the design stage, will make a huge difference
in the bottom line to the contactor affecting the time and cost of the project.

Design Approvals by the client and his consultant as opposed to design

review: where does the clients comments and interferences stop? And what is
the resulting liability? Furthermore, given the evolving nature of the design in an
EPC arrangement, and the different interpretation of the requirements by both the
Consultant and the Contractor, it will make such approval highly subjective.

Schedule interference and input including approvals by the client and his
Consultant: Would the clients actively involves in the schedule and provide
different approach, sequences and priorities? What would be the ramifications of
such involvements, especially if his approval is required?

Clients Recommended (Pre-approved) list of vendors/suppliers and their

effect on the project: Although this issue in general, is a clear requirements in the
tender documents and the contactors supposedly must have made the proper
considerations during the bidding stage, the reliability and availability of the
selected vendors, and the restriction of not going anywhere outside the list, is a
major risk that is shifted to the contractor. The risk in these suppliers performance
and compliance is under the EPC contractor umbrella. What about some key
suppliers being busy on other jobs, possibly for the same client?

Clients furnished equipment/material if any supply stock material: What

are the conditions and the state of such equipment/material? The availability of the
test certificates and whether it is conforming to the engineering requirements or
not? The availability and delivery timing to coincide with the project schedule?

Construction Drawings (Issued For Construction (IFC)): Active Clients

involvement in reviewing and approving IFCs for an already approved design may
becomes clear interference that may lead to delays and problems. Again
emphasize to be made in drawing the line between normal review/approve process
as opposed to providing opinion that may lead to changes in the IFC and increase
time and cost to the contactor. Such issues are common dispute on site between
The Contractors field engineering team and the Client/Consultant reps.

Commissioning phase and the Performance Acceptance Test: Are the

required functional and performance tests clearly spelled out? Who are the parties
involved with the tests and acceptance? What are the tolerance level, timing and
procedures? These are some risky items that the EPC contractor should be
prepared for and equipped to take.

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The above is a summarized list of some generally encountered disputable items that
ought to be closely watched and acted upon. The real two questions to be answered
are:

1) By having the client actively involved in approving the design and the schedule
with extensive comments and suggestions, i.e. interfering with the EPC
contractor, isnt he practically taking responsibility of such design and any
performance problem or schedule delay would have to be considered under his
responsibility, at lease partially?
The answer to this question lies in most EPC contacts where it is spelled out that
any information or comments given by the owner/consultant is for guidance only
and do not relieve the contractor from his responsibilities.
2) How much of the above issues are known and/or anticipated by the EPC
Contractor at the early development & bidding stages and how much risk would
he be willing to take?

The following Figure #2 illustrates the EPC process, in general and it shows where
usually the EPC contractors should focus their attention during the different life cycle of
the project.
Figure 2 The EPC Process and potential interferences between EPC Contractor and
Client/Consultants.

THE EPC Process

Development Phase Bid Phase Execution Phase

Employer decision to go
EPC Turnkey EPC Contractor advance At Execution:
the design further into The Price is Fixed, But
Basic or Preliminary but the design is not
Employer with his incomplete design
Consultant to express the
Requirements in a form
of Design Brief Possible Owner/Consultant
Interferences with The EPC
Forming EPC Team
Single Resp.
Award Contractor:
Designer/Contractor

Clients Requirements
Incorporating the Design vs. Scope Changes
Design into BID EPC Contractor Prepare Design Approvals
Documents cost estimate based on Schedule Approvals
the Incomplete design
Suppliers./Fabricators approvals
Owners Feedstock and Storage
Owners supplied equipment
Spare Parts Issues
The design is Partially prepared by
the consultant and transferred to Interference during
the EPC Contactor commissioning and testing phase

EPC Contractor to meet the

employers requirements

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Contractual Obligations Execution of the EPC Contracts

The bottom line is that the Project Manager (PM) has inherited the contract as is and
he/she will live with it for the rest of the project? This is more so when the PM is an
outsider, i.e. he/she got into the project after the contract was awarded and was not part
of the proposal development team. The transition process and the familiarity with the
contract and the new corporate system and the project team may become very critical at
the early stages.

Usually contracts are explicitly define: 1) the scope of the work, 2) the quality required 3)
the time frame to complete the work and 4) many other contractual, technical and
administrative requirements.
Additionally, It is very important to make sure that the contract explicitly defines the rights
and obligations of all parties to the contract [4], [5] included in the a) General conditions,
b) Special Conditions c) Exculpatory Clauses and d) other contractual documents.

Contractual Arrangements and Clauses Involving risks:

After establishing Who, What, When at a high level the next step for the Project
Manager to do is to get into the detail and dig-out all risk items from the contracts
documents by:

1. Understanding thoroughly the contract reading the fine print

2. Understand and clarify the Clients Requirements, the clients
Conceptual/Preliminary design and the proposal follow-up design along with the
anticipated Contractors compliance.
3. Understand the bid, the estimate and the pre-contract award arrangement
including the already evaluated risk factors (risk assessed during the proposal
development phase). Proper hand-over from the proposal team to the execution
team.
4. Verifying any changes made during the bid phase by business managers that
may affect the construction phase: promises, other remunerations, future
commitments,
5. Meeting the client, establish further communication lines, verify and finalize
outstanding technical and contractual issues, schedule, and payment agreement.
6. Any unanticipated surprises encountered so far?

Understand the Risk Inherited In the Contract - Key Clauses

The following is a list of typical items inserted in most Construction contracts including
EPC arrangements, under main headers (or Articles/Clauses) among many others. The
selection is made to reflect the most commonly risk clauses during the life cycle of an
EPC project.

Project Mangers need to familiarize themselves and develop action lists for these items
to keep their projects under control. The order of the list does not reflect any priority.

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 Key Clause Risks Issues Risk
Shifting
to
Compliance with EPC Contractor to provide Bid and Performance EPC
Insurance and bonds (Bank guarantees) in the range of 5% Contr.
bonding requirements 15% in additions to insurance Usually difficult
to obtain on EPCs and requires financial
backups

Permits and The EPC Contractor responsibility to arrange for EPC

responsibilities local municipal permits incl. environmental, Contr.
local, and special permits.

Differing site Usually it is the contractors responsibility. EPC

Conditions - Soil tests Preferable to be done during the bidding Contr.
and investigations process. Risk mitigation (i.e. Insurance) can be
an alternative.
Submittals Reviews EPC Contractors to arrange on time, as EPC
and Approvals required, all submittals. Conrtract.

Notices EPC Contractors to evaluate all required notices EPC

and submit them timely. Some non-compliance Contr./
to notices may cost the contractors the right to Client
claim.

Delays and Time EPC Contractor to be prepared to request EPC

Extensions compensation for extension of time and impact Contr.
cost resulting from clients or its agents causes.

Delays Liquidated Clients to use this mechanism to claim for EPC

Damages DLDs delays caused by the contractor. Damages to Contr.
be genuine estimate prepared at the time
entering the contract.
Performance To be provided by the EPC Contractor in case EPC
Liquidated Damages of not meeting the specified performance and to Contr.
PLDs be genuine pre-estimate of the damage as
anticipated at the time of signing the contract.

Changes or Contractual mechanism is required to EPC

Variations accommodate changes to the contract. The PM Contr.
should consider changes with careful
examination on its impacts, time and cost and
performance

Schedule Usually, the EPC contractor is responsible for EPC

Requirements the schedule and sequence of work. Conditions Contr.
of approvals varied among contracts.

Payments Down payments arrangements and guarantees, EPC

Contractor Mobilization payment costs and the Contr.

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 Conditions for payment release.

Inspection The condition and state of the equipment/ EPC

material and the clients testing and inspection Contr.
requirements ought to be examined.

Force Majeure Exclusion of liability for both parties in case of EPC

force majeure Contr. /
Client
Suspension of work Most likely the Clients has the right to suspend Client.
stop work order the work

Termination Applied to both parties. EPC Contractors has EPC

the right to terminate due to non-payment or Contr. /
delay in payment, Clients unreasonable Client
interference, and un reasonable delays in
approvals, force majeure, etc.

Dispute resolution What would the governing law be, the law of the EPC
clauses country or an international arbitration? Contr.
What is the suggested dispute resolution
process in the contract? Is the contractor
required to continue executing the work while
dispute is pending in process?

The above is summarized checklist to be backed up, for each item, with proper action
list to be maintained by the PM, detailing all needed tasks and resources to steer and/or
mitigate any item.

There are a number of other contractual topics to be addressed in general construction

contracts, including under EPC arrangements, such as; dealing with partners, sub-
contractors, local & Governmental bodies, Health and Safety, Quality and Environmental
issues, as project specifics falling within the responsibility of the contractor.

Actions to follow - The needs for effective and early start and
establishing the communication links
As shown above, large EPC undertakings are usually handled by multiple parties
experienced in their fields, more so when the undertaking is an international project,
where local firms and employment are contractually required.

Building an early line of communications is among the most important early tasks a
project manager need to do. Based on the contractual arrangement among the parties
(designer, supplier(s), fabricators, contractors and other consultants) a communication
network among these players and stakeholders should be well defined and detailed.
Matrix of responsibilities should be prepared reflecting the Scope Of Work (SOW) at a
given level of the Work Breakdown Structure (WBS).

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Such early communication network along with the responsibility matrix will form a
framework or a checkpoint(s) to be measured against periodically, especially if it is
combined with a timeline schedule (to establish deadlines and milestones) at a high
level.

Action List for weekly monitoring to be developed by the Project Manager from the above
in addition to other contractual requirements. Such action list can be used for both
external compliance (submittals, deliverables, and clients requirements) and internal to
follow-up and control at the project discipline level.

Typical EPC players and stakeholders on large projects, where good communication
network is required include:
o Owner/Developer
o Equity Owners
o Lenders
o Debt Guarantors
o Engineers/Designers
o Contractors General and/or Primes
o Subcontractors
o Suppliers and Fabricators of major equipment
o Advisors and consultants: financial, technical and legal
o Government Authorities

A short Action List suggested in the following sections can be the used as a framework
at the management/functional levels to control and steer the project in the desired
direction.

PM Early Tasks Early Action List/Items to be maintained by the PM team

1. Assignment of project personnel and team building

2. Establishing the Line of Communications
3. Project office/Site conditions, permits and access
4. Pre-mobilization phase / design phase
a. Examination of the Engineering and construction level of readiness:
b. Is the design is proceeding well, as per plan?
c. Is the level of design is consistent with the project requirements
d. Design review meetings to be held periodically
5. Examining the constructability of the project and Involvement of construction
team at this stage is important
6. Final review of the estimate and schedule before moving into the next phase
(construction) is recommended, this is to measure the status of the project pre-
construction and evaluate any impact caused by design changes, sample reports
to review: Schedule, Cost report (summary), Change Orders, Procurement and
deliveries report
7. Project mobilization plan
8. Meeting, kickoff meetings responsibility to control and coordinate engineering
and construction
9. Soil conditions, Permits from different regulations and Owners permits
10. Submittals list(s) and schedule

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 11. Early coordination meetings (communication, understanding and co-operations) -
partnering
12. Health, Safety and security: Procedure to be followed, plan and program, any
concern about major safety issues especially on International projects
13. closures of negotiations with subs and suppliers
14. Licensing compliance

After establishing the required framework with action lists and checkpoints at the early
stages, PM will move into maintaining his plans and actions on a regular basis and get
his/her team leaders involved in contributing to the plan. This includes all internal and
external interfaces among all players.

The team leaders who usually contribute to steer the plans and take actions toward the
above-mentioned items, including close monitoring of the risk shifting clauses as
addressed above, are typically:

Engineering Management Lead Early Action/Watch List:

Deviation from clients requirements, Approvals and Reviews (when
required), Scope creep, changes
Design deliverables drawings transmittals and submittals and technical
specifications (Contractual)
Critical drawings needed to get long lead equipment item going and its
schedule conflict with Client (if any?).
Critical drawings needed to start construction
Issuance of conformed contractual documents
Drawings turnaround submittals, timing and informal agreements to fast
track or speed-up approvals
Change orders procedures negotiate with owner
Progress certificates
Technology challenges? If any

Administration, finance and organizational Lead Early Action List:

Contract administration, Terms of payments (contractual), Cash-flow

Project Controls and Subcontracts Management Lead Early Action List:

General project controls and reporting (Contractual), depending on the
contractual arrangements and the contract requirements.
The basic ingredient to a project plan is illustrated in a project execution plan
addressing: Client milestones, plot plan and GAs, scope definitions,
PFD/P&ID, Engineering deliverables, the equipment list, Schedule,
Manpower, subcontracting arrangement and procurement packages.
Project Controls to ensure the changes made, as the design evolve in EPC
contracts, to the scope of work, reflecting revisions to cost and plan.
Any notices referring to claims for time and cost ought to be prepared timely.

Procurements Management Lead Early Action List:

Pre-approved list of suppliers/fabricators to be pre-qualified internally by the

EPC contractors procurement team and verify credibility.

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 RFI, RFQ and quotations, Deliveries, Construction Material: to comply with
contractual obligation and manufacturing. Verify with the QC and QA
Local issues: Customs, transportations

Construction and Commissioning Lead Early Action List:

Site mobilization, permits, access, planning,
Facilities: warehouse, fabrication, reinforcing yards.
Site security
Material handling and storage
Warehousing
Scope of construction work: Design builder, Subs, etc.
Supplies by different parties?

Handling the above number of tasks, on a daily basis, requires full dedication,
commitment and communication skills by all project team members under the Project
Manager leadership.

As one of the many definitions of a Project Manager, the following extracted from the
PMI (Roles and Responsibilities of the Project Manager) [1]:

To define what a project manager is one must first determine the functions that a project
manager is expected to perform during the course of a project. These functions are:
planning and scheduling, performance analysis, progress reporting, maintaining
client/consultant relations, project trend analysis, cost trend analysis, logistics
management, cost control, organization and manpower planning, maintaining the
technical/business interface, contract administration, controlling material and manpower,
estimating and procedure writing and administration. Some other functions of the project
manager include being a good communicator who works well with others, a qualified
negotiator, and a good sales person This list is by far not inclusive,

A shorter version to categorize the above is by defining the basic four functions [1], [2]
which a project manager should perform: Planning, Organizing, Leading and Controlling.
And in terms of roles to fulfill, Project managers should: be the Integrator, the
communicator, the team leader, the decision maker and the climate creator or builder.

The required management tools needed to perform the PM duty can be summarized by
the ability of the PM to effectively apply his/her delegation, communication and
leadership skills.

Conclusion:
The nature of EPC Turnkey and DB projects requires close oversight [3] by project and
top management during both pre and post contract award phases of projects. Although,
considerable attention and evaluation are given by top management during the pre-
award phase in terms of Go/No-Go decision, which mainly to protect the interest of the
organization as a whole, very little considerations are given to the post-award phase
leaving it to the discretion of the project manager who usually, has a lot on his/her plate
at the time.

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This article discusses briefly the definitions and nature of EPC/Turnkey projects, its risks
and rewards as encountered by the parties to the contract. More so, some conflicting
issues resulting from complex arrangement and where the contractor, as a risk taker
should draw the line and decide on the calculated risk to take.

Post award risk and commitments as enforced by the contractual arrangement in terms
of articles and clauses in the contract are highlighted for the most frequently
encountered and important clauses. Tackling each clause and issue individually and in
detail is a subject to full a fledge workshop.

Identifying risk elements do not make them less risky or less costly, however, it is up to
the upper management to decide how to mitigate such elements.

The project manager roles and obligations on a typical EPC, Turnkey or DB project
covers many technical and managerial areas of knowledge and expertise. Some
suggested tools to be implemented early in the project with items related to the above
risk taking clauses are addressed.

References:

1. Adams J. R., Campbell B. W., Roles and Responsibilities of The Project Manager
PMI publications 1990
2. Baar James E. Interactive Planning Project Planning: A Great Communicator
AACEI transaction 2002
3. Baram, George E. Project Management Oversight Effective Risk Management
Tool for EPC/Design-Build Projects. Transactions AACE International Orlando 1993
4. Clough Richard H. Construction Contracting, Book, Wiley 1996
5. Lane.R. J The Basic Ingredients for Project Success Construction Briefings,
Federal Publications, October 1996
6. FIDIC (International Federation of Consulting Engineers) Design-Build and Turnkey
Contract 1995 (Orange Book), and EPC/Turnkey Contract 1999 (Silver Book).

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