Scottish Government

Section 6 - Design Quality in Building Procurement

Key Points

• Good design is not an alternative to value for money, but is integral to it
• Good design is not merely a question of style or taste but arises from the careful synthesis of many interrelated factors including architectural vision, functionality and efficiency, structural integrity and build quality, accessibility, security, sustainability, whole life costing and flexibility in use
• Clients must be clear about the level of funds available for a project from the outset and ensure that their aspirations for quality are underpinned by realistic and affordable assumptions
• Clients must carefully assess and define their priorities before appointing design consultants
• The Client should ensure he/she has access to appropriate design advice throughout the construction process in order to monitor the quality of design and finishes
• Post project evaluations of building projects/programmes are mandatory for major projects and any lessons learned should be shared with Scottish Procurement and Commercial Directorate's Construction Procurement Policy Unit, for wider dissemination as best practice
• Quality based designer selection is a structured procedure for selecting a design team. Design competitions are a means to primarily select specific design ideas or outline design ideas for a project, rather than the design team personnel
• All public sector appointments, irrespective of the client's preferred nature of competition or reference to any other guidance on design competitions, must be consistent with EC procurement rules in terms of process and outcome. Public sector clients must ensure that design team appointments follow the procedures described in Section 3 Annex A of the works procurement guidance part of the Construction Procurement Manual. Quality aspects cannot be considered in isolation but must be assessed as part of a VFM evaluation which also takes account of fee proposals
• The role of an informed client is vital in ensuring the successful delivery of the project within the agreed timescale and budget and to the required standards and requirements of all users

Section 6: Design Quality

Why good design?

Good design is not an alternative to VFM, but is integral to its achievement. A good building project must also contribute to the environment in which it is located, deliver a wider range of social and economic benefits and be adaptable to accommodate the needs of future users.

An enhanced built environment which incorporates principles of good design can improve the quality of life of those who use and work in public buildings. Throughout the life of a building, design excellence can improve the standard of public service delivery, make it more efficient and contribute to staff recruitment. Good design can ensure that capital costs are competitive and that savings can be achieved on running and whole life costs through reduced maintenance, energy and operating costs without compromising the attractiveness and quality of the building. So investing in good design can make the most beneficial and effective use of resources, can add value and represents a sound investment in the future. High quality building design is therefore one key mechanism in providing VFM in the provision of public services.

What is the Scottish Government's view?

The Scottish Government recognises the importance of good building design in meeting a range of policy objectives and its Architecture and Place Division of the Built Environment Directorate has published a policy which promotes and encourages investment in well designed buildings in both the public and private sectors. Architecture and Place Division can offer advice on design and also acts as the sponsor body for Architecture and Design Scotland, a Non Departmental Public Body established to promote good architectural design.

What defines good design?

The term covers the way in which buildings work as much as how they look. Good design is not merely a question of style or taste but arises from the careful synthesis of many interrelated factors including the design team and key design issues.

How is good design achieved?

From the outset, clients must be clear about the level of funds available for a project and ensure that their aspirations for quality are underpinned by realistic and affordable assumptions through establishing the right budget. These quality matters and functional requirements must then be set out in a thorough project brief. In order to monitor and control the procurement, design and construction processes, procedures and responsibilities should be clearly defined (and assigned). Ideally, designers should engage in challenging and constructive dialogue with the client, building users and those involved in supplying and manufacturing materials, goods and services. All concerned should work to a realistic and robust timetable, which gives the design team enough time to develop and achieve a good solution, while consideration should be given to the nomination of an organisational design champion.

The role of an informed client is vital in ensuring the successful delivery of the project within the agreed timescale and budget and to the required standards and requirements of all users.

How is good design evaluated?

Evaluation is the process of assessing the impact of a project, programme or policy while it is in operation, or after it has come to an end. It is an essential tool to achieving best value for money, improving performance, decision making and learning lessons. Evaluation should be costed, resourced and planned for at the outset of a project/programme/policy.

To support the continual improvement of the construction and procurement process, post project evaluations (PPEs) of building projects/programmes are mandatory for major projects and any lessons learned must be shared with Scottish Procurement and Commercial Directorate's Construction Procurement Policy Unit, for wider dissemination as best practice. Project evaluations should be carried out as an ongoing process throughout the project/programme/policy's lifecycle, rather than as a single post project review at the end of the construction stage, in order to ensure that important information and lessons are neither lost nor forgotten. It should also be of benefit to improving work in progress. Feedback is a major part of the project sponsor's role and in carrying out their duties, project sponsors may wish to appoint an individual specifically responsible for the day-to-day tasks relating to project evaluation and feedback. This will help to ensure that all information is maintained and handled in an appropriate manner and any reports produced are distributed to the appropriate parties, including Scottish Procurement and Commercial Directorate's Construction Procurement Policy Unit.

Project reviews must identify those aspects and processes that have been particularly successful and those where difficulties arose, and do so in a blame free environment. The post-project review must be completed before all members of the project/programme/policy team disperse.

Lessons Learned

The purpose of lessons learned reporting is to bring together any lessons learned during the project/programme/policy that can usefully be applied to future projects/programmes/policies. At the close of the project/programme lessons learned reports must be completed and prepared for dissemination and a copy should be issued to Scottish Procurement and Commercial Directorate's Construction Procurement Policy Unit. As a minimum, lessons learned should be captured at each stage of the project; ideally a note should also be made of any issues that arise in the use of the management and specialist products and tools at the time.

At the start of a new project, previous lessons learned should be reviewed to consider how key messages might be applied to the project/programme.

The key advantage of post-occupancy evaluations (POEs) is the opportunity to achieve improvements in the ways future buildings will support operational objectives. Participants often identify areas where design improvements could be made and ways in which buildings and equipment could be used more cost effectively. These may only be minor, but they could produce significant benefits to future designs. The process of evaluation can provide important feedback on whether resources are being targeted at the most important areas. This can also enable poorly functioning or seldom used features to be eliminated from future designs and the repetition of mistakes to be avoided.

The nature of PPE and POE reports should be set out and agreed at the start, and project sponsors should ensure that provision is made for the preparation of both when setting budgets and timetables.

The Design Team

How is the team selected?

There are several methods of selecting the appropriate design team for a project, including quality based designer selection (QBS) which is a structured procedure for selecting a design team, and design competitions, which primarily select specific design ideas or outline designs for a project, rather than the design team personnel.

How does QBS work?

It looks for an appropriate balance of design skills, experience, innovation, and an ability to perform on schedule to the required standards and within budget. A client, or client committee, chooses a team based upon a weighted scoring of a list of relevant factors, including technical ability, resources, previous experience of similar projects, deliverability of the design and partnering arrangements, aimed at determining which design team is most able to handle the project successfully.

Throughout a building project, designs will be developed through constant dialogue with the design team, so it's essential that a key selection consideration is inter-personal skills; the client must feel that he/she has the ability to work with the designers.

It is essential to know that a design team's claimed expertise is currently available, too. The question of whether a design team has completed major quality projects within the past five years may give a more fair comparison between long established and new design teams. It is important to ensure that the principal designer responsible for successful past projects is present for the interview, and such individuals should be named in the contract if that design team is successful.

And what about design competitions?

A competition to select an outline design, rather than the design team members, requires the client to have a well developed brief for the project. Design competitions may be appropriate where there is either a unique problem that will benefit from a wide range of design approaches being explored (along with likely considerable public interest - which may be the case on a major new public building) or where the competition promoter wishes to encourage the development of new talent.

What's the procedure for appointing the team?

All public sector appointments, irrespective of the client's preferred nature of competition or reference to any other guidance on design competitions, must be consistent with EC procurement rules in terms of process and outcome.

The appointment or competition must therefore:

• strike the correct balance between quality and price to achieve whole-life VFM evaluate the quality and price aspects against clear, unambiguous and pre-determined criteria
• assess the technical ability and economic standing of the design team (including joint ventures or partnership arrangements) to deliver the project on time and within budget, as well as to the required standards of quality
• maintain a full and transparent record of all aspects of the competitive process from start to conclusion, including the evaluation of the pre-qualification questionnaires during the selection stage and the decision-making processes at the award stage

Public sector clients must ensure that design team appointments follow the procedures described in Section 3 Annex A of the works procurement guidance part of the Construction Procurement Manual which sets out appropriate criteria to use at both the selection (short listing) and award (bidding) stages of the appointment process, as well as indicative quality:price evaluation ratios for different types of project.

Which selection criteria are used?

Selection criteria should include economic standing, insurance provisions and technical ability; the last of these enables consideration to be given to resources, technical suitability and past performance. This stage also aids production of an objective and transparent short list of the most suitable organisations, from all those that expressed interest in providing design services.

Which criteria are used at the bidding stage?

The award criteria enables a specific qualitative assessment to be made of the particular proposals for the project - not just technical merit of the design proposals but also other aspects of successful delivery such as proposed team-working, management arrangements, and project team organisation.

Where joint ventures are proposed - perhaps to combine the innovative skills of a new or small design practice with the experience and resources of a longer-established designer - the award criteria enables the client to assess the ability of both parties to fulfil their responsibilities and to evaluate the compatibility of working cultures and practices. Visits to the design offices of all candidates, including those forming joint ventures, should follow a consistent approach and involve the same personnel.

How do these criteria relate to budget considerations?

The qualitative criteria adopted at the selection and award stages should be appropriate for the individual project and weighted to suit the circumstances. It's important that these aspects aren't considered in isolation but should be assessed as part of a VFM evaluation which takes account of fee proposals.Section 3 Annex B describes other aspects of appointing consultants, including the various ways of paying for professional services. In circumstances where ad valorem (usually percentage) fee structures are appropriate, consideration must always be given to the application of an abatement or capping mechanism in order to contain fee costs at a fair and appropriate level.

Criteria used during selection and award stages must be applied consistently by all of those involved in that stage of the procurement procedure. In other words, once selection and award criteria are established, individual members of a sift or tender evaluation panel must not apply different criteria, or interpret the scope and meaning of established criteria unreasonably, or apply them differently to bidders. Furthermore, once selection criteria are established, they should be made available to candidates. Award criteria must be set out in either the OJEU contract notice or the contract documents.

Key Design Issues

Although what constitutes 'good design' can be subjective, many of the issues addressed here can be assessed objectively - whether the building will function efficiently and effectively; whether there is clear evidence of thoughtful, imaginative and even inspirational proposals that will not only work, but work better; and whether the materials, construction methods and the proposed layout will enhance long-term value for money. Matters such as public space should also be considered.

Design evaluation can be structured around key themes such as

A clear architectural vision

Q. Does the design reflect the aspirations for a building which has architectural and civic status without being institutional?
Q. Is there a clear and strong architectural concept underpinning the form and character of the building, and how spaces relate to each other?
Q. Is the scale and proportion appropriate?
Q. Does the design provide a variety of interesting and uplifting spaces?
Q. Will all users of the building be satisfied with the design?

A functional and efficient layout that works well

Q. Will the proposed accommodation provide spaces that are well-proportioned, efficient, fit for purpose, meet the needs of users and requirements of the brief, and provide proper circulation and assess routes?
Q. Does the layout provide adequate access to work colleagues, support equipment and spaces?
Q. Do the layout and fittings provide adequate visual and acoustic privacy?
Q. Does the layout enhance the operational efficiency of the activities taking place in the building?
Q. Is this an intelligent, smart design that provides added business and social value and adds value to the vitality of the community?
Q. Does the layout and orientation of the building take full advantage of the opportunities offered by the site, such as efficient energy use?

Build quality and durability

Q. Will the completed building be built to last and be easy to maintain?
Q. Is the design based on whole life cost principles?
Q. Have running and maintenance costs of the building been considered at the design stage?
Q. Has the choice of materials taken account of the location, exposure and surrounding context as well as security and safety considerations?
Q. Is the detailing of junctions and materials well considered, robust and attractive?
Q. How will the building appear in different conditions, for example, in sun and rain, at night, and in different seasons; and will it age gracefully?
Q. Have artists or craftspeople been engaged in the project as part of the design or construction team?

Structural integrity, environmental services and energy use

Q. Have the structural and environmental strategies been taken forward in an integrated way from the outset of the project?
Q. Does the design take full advantage of natural light and ventilation as far as technically and economically possible?
Q. Does the design provide a comfortable environment for users throughout the year?
Q. Are the environmental controls easily understood?
Q. Does the design provide good acoustics throughout?

Accessibility

Q. Are entrances well positioned, safe, welcoming, attractive and capable of providing adequate security?
Q. Is there a clear, unobstructed access route through the building?
Q. Do both the building design and furniture design take account of the needs of the disabled in a manner which is inclusive?
Q. Are accessible toilet facilities in the most practical positions?
Q. Are external areas fully accessible by all users?
Q. Are designated accessible parking spaces suitably located, and is there a clear route from public transport facilities?

Flexibility and adaptability

Q. Can the design be easily adapted or extended to cater for expansion or contraction of facilities?
Q. Are the positions of doors, windows, stairs and services conducive to adaptability for future changes of use?
Q. Can the design easily accommodate multiple uses; for instance, can the layouts of rooms be easily reorganised?
Q. Can the design take account of technological change on working patterns such as hot-desking, dynamic sharing of space, and electronic conferencing?
Q. Has the design of shared spaces been adequately considered to prevent unwelcome compromises?

Sustainability and ecology

Q. Has the design been developed on environmentally friendly and ecologically sound principles and with genuine commitment to sustainability issues?
Q. Is the design a good sustainable use of the site?
Q. Does the design seek to conserve use of energy, water and other natural resources?
Q. Does the design use the natural characteristics of the site, including any changes in levels and orientation, to maximise potential passive (solar and wind) gains and minimise energy losses?
Q. Are materials used non-toxic and non-polluting and selected from certified sustainable sources?
Q. Are the materials robust and environmentally friendly, visually pleasing and suited to the prevailing climate?
Q. Does the design of the building and grounds promote biodiversity?

Sense of place, external landscaping and social integration

Q. Do the buildings and their external spaces provide an attractive setting which contributes positively to the local built or natural environment?
Q. Have the external spaces and landscape design been considered as an integral part of the project from the outset?
Q. Does the design provide for a variety of attractive external spaces, which relate well to each other and to the internal spaces and offer appropriate security?
Q. Do the scale and form of the buildings contribute positively to the neighbourhood and surrounding community?

Public Space

Setting the Budget

The business case should include statements of expectation for design quality. Budgets based on the business case should be set realistically, informed by comparable costs through site visits and research as necessary. Discussions with professional advisers at the earliest stage can assist in determining and defining design priorities and setting project objectives.

Quality Matters

How is quality evaluated?

General guidance on achieving VFM in works procurement, based on seeking to achieve an optimum combination of whole life cost and quality, is set out in Section 2. Evaluating and achieving consensus on quality can be facilitated through the use of formal techniques and there are a number of tools which can help.

The Construction Industry Council (CIC), for example, has developed its Design Quality Indicator (DQI) to evaluate the design quality of buildings throughout the development and life cycle of a project.

What is DQI?

This non-technical questionnaire can be completed by all stakeholders involved in the creation and use of buildings, including public and private clients, developers, financiers, design firms, contractors, building managers and users. CIC's web-based tool, DQI Online, automatically adjusts the questions displayed so they are relevant to the particular phase of the project that is being assessed. The four stages covered by the DQI are:

• Briefing: It can be used through strategic briefing stages to set priorities and answer questions such as: 'What do we want?' 'Where do we want to spend the money?'
• Mid-design: It can be used throughout the design phase before it is too late to make changes
• Ready for Occupation: It can be used to answer questions such as: 'Has the brief/original intent been achieved?'
• In-Use: It can be used on a completed building in order to receive feedback from the project team and the building users to help make improvements for the next project

How does it work?

DQI help to ensure that such issues are given due consideration and weighted in their importance. Through the process, they help clients to articulate their needs and to develop a greater awareness of the many issues involved. Principal components of CICDQIs include:

Which other quality indicators can be used?

Quality Indicators in the Design of Schools (QIDS) has been produced by the Royal Incorporation of Architects in Scotland (RIAS) to assist in the process of setting out stakeholders' objectives relating to design quality. Although specific to school buildings its principles can be applied to other construction projects. Its purpose is to stimulate debate among stakeholders and user groups in order to help to create a vision document for a project, which can be used to inform the project brief.

How can quality be maintained on site?

There is a risk that, once a project moves on to site, the client may underestimate the effort which will continue to be required to maintain design quality. Any shortcuts taken at this stage can put the overall design quality of the project at risk. The Client should ensure it has access to appropriate design advice throughout the construction process in order to monitor the quality of design and finishes.

These advisers should also ensure that design aims are not sacrificed in the management of change during the running of the project. If design standards and quality thresholds are clearly defined, then the review process throughout the delivery stage should provide sufficient safeguards against quality dilution. A structured process of quality checks during construction is important to ensure that what has been agreed is actually being provided. All partners should be involved in these checks as the risks of unsupervised changes on site can affect a wide range of matters, such as the provision of resource areas necessary for facilities management and the quality of finishes, which in turn may affect both cleaning and maintenance.

Involvement of artists/craftsmen

Why do it?

There may be scope for the involvement of artists or craftsmen in a project. When successfully implemented, artworks can help to create more distinctive and attractive buildings and urban spaces and enhance the public's experience of an architectural space.

How does it work?

If it is decided to use collaborators, it is best to consider their involvement from the start, when their designs can be most easily integrated into the overall design. Such early involvement can often contribute to creating a scheme with a distinctive character. Clients may also wish to seek specialist advice from public art agencies with regard to including artwork within a project.

How does this lie with the budget?

Clients may wish to consider allocating a specific budget for the inclusion of artwork as an integral element of a project. However, care should be taken to ensure that any resulting expenditure is proportionate to the benefits and is appropriate to the building's status and function, in order to avoiding subsequent criticism of the project for inappropriate use of public funds.

Project Brief

A vital factor in achieving high quality design is that clients have a firm and well developed view of what they want, before appointing design consultants, and that this is clearly stated in project briefs. A well-developed brief, with common consensus on operational and quality priorities, is essential for the provision of better design. A rigorous approach to this stage of work will significantly improve the client's capacity to deliver a quality project.

On the other hand, proceeding with sketchy and under-investigated assumptions can be detrimental to the outcome of the project. Statements that set out the client's aspirations on design in terms of matters such as character and durability should be incorporated into briefs.

The project brief should also contain statements on the client's desired approach to sustainability. Integral to the design and procurement process, a commitment to sustainable design can bring real benefits in terms of reduced running costs and quality of environment for users. Further guidance on achieving sustainability in construction procurement is set out in Section 7.

The Design Champion

Project sponsors may frequently take responsibility for only single projects, once in their career, and it is therefore desirable to also identify a senior individual, as an organisational Design Champion. Their role is not project specific but is to advocate design quality.

This design champion's remit may include:

• ensuring that aspirations for design quality underpin all projects undertaken across an organisation
• ensuring that these aspirations are clearly stated in briefs
• assisting in questioning quality throughout the process
• providing further support for resisting change which reduces quality and VFM

The Role of the Client

At the beginning of the project, the client will need to establish the nature and scale of what is required. Clients should establish the views and aspirations of all stakeholders, and their aims will become the reference point throughout the design and construction stages and can be used to test the overall success of the project over the long term. As with any building project, the initial stages are vital, and a period when the most value can be added. Providing sufficient time and resources for strategic thinking will produce dividends in the long run. An informed client is critical to the success of a project.

As part of their responsibilities, the client should: