9B16E038 407 ETR HIGHWAY EXTENSION: MATERIAL PROCUREMENT
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In Apr i l 2016,1 Ca rl os Pla nel l es , cha ir ma n of t he boar d of the pa rt ner s hi p c ha r ge d wi t h buil ding pha s e 2 of the $1 billion Highway 407 east extension, was reviewing an e-mail from the procurement team that recommended the allocation of more than $45 million in contracts for the purchase of granular base material for the highway construction.
A few hours after receiving the information, some members of the executive committee responded to the recommendation confirming their acceptance. At the end of the day, all executive committee members but Planelles had accepted the recommendation.
Planelles knew that the procurement team had worked for several weeks to negotiate and analyze the suppliers¡¯ quotes, but after reviewing the recommendation, Planelles wondered whether the team¡¯s recommendation captured the optimal supplier mix and the most cost-effective selection of suppliers.
BACKGROUND
Ferrovial S.A. (Ferrovial) was a global infrastructure development group based in Madrid, Spain. Ferrovial designed, built, financed, operated, and maintained infrastructure assets around the world. In Ontario, Ferrovial was the majority shareholder of the 407 Express Toll Route (407 ETR) highway, and in 2016, it had completed the phase 1 extension of Highway 407 east to Oshawa.
In 2014, the 407 East Extension Phase 2 project was awarded to a general partnership between Ferrovial and a local construction company for almost $1 billion. The project was a public-private partnership based on a design, build, finance, operate, and maintain model. As this project would require substantial purchases of goods and services, the procurement team included experienced personnel who would be responsible for the procurement strategy, negotiations, and award proposals.
1 All currency amounts are in Canadian dollars unless otherwise noted.
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The 407 East Extension Phase 2 was a 25-kilometre (km) highway connecting the existing Highway 407 in Oshawa, Ontario, to Highway 115 in Peterborough; it included a 10 km north-south connector to Highway 401.
THE GRANULAR MATERIAL
An aggregate material composed of a mixture of sand and rock was used as a base layer under the asphalt on highways. Specific types of the aggregate material had a predetermined size and mix content, which was regulated by the Ministry of Transportation of Ontario. The thickness of the base layer depended on the quantity and size of the expected traffic on the road (see Exhibit 1).
There were two types of granular material to be used in the 407 East Extension Project: Granular A and Granular B type 1. Granular B type 1 was to be used for low-intensity traffic roads and crossing roads, while Granular A was the base for major highways.
In Central Ontario, Granular A material was sourced through mining in quarries that were generally located over 80 km from the project, making transportation costs a significant component of the overall cost. In certain projects, suppliers manufactured Granular A in local gravel pits through crushing operations. This process increased the cost of manufacturing but decreased the cost of transportation since the gravel pits were closer to the project. The reduced transportation cost meant that the bid price was still attractive.
THE PROCUREMENT PROCESS
The procurement department coordinated with the design team, quality assurance, and construction department to prepare a request for quotation (RFQ), which included all technical specifications, key parameters for the required materials, the quantities necessary in each area of the project, and the time when the delivery would be needed.
The project was to build 30 km of highway. Costs for trucking were generally calculated per kilometre, so the project was divided into six geographical areas (C1, C2a, C2b, D1a, D1b, and D2) in order to facilitate trucking cost calculations (see Exhibit 2).
Because of the large quantity of material required and because supply was critical for the success of the project, the executive committee had decided that no firm would be awarded more than 50 per cent of the total supply contract. This approach was intended to ensure that no supplier would be in a strong negotiating position to make any changes to the contract after the award.
Additionally, the construction department had requested that suppliers provide the manufacturing price and transportation costs separately for each geographical area as there was a possibility to source transport from different trucking companies if that made economic sense.
After RFQs were released and submitted to the suppliers, the procurement department met with all suppliers to respond to their questions and suggestions. After the quotes were received on the RFQ closing date, the procurement teams analyzed and assessed them for compliance. Following clarification and negotiation, they met again with the suppliers until they received final compliant prices.
Once the procurement department was certain that all compliant quotes had been received and all the RFQ conditions had been met, they issued an award proposal to the project director, who reviewed the proposal
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and requested approval from the executive committee of the partnership. The executive committee was composed of four people¡ªtwo from each partner company. In addition to many other roles and responsibilities, the executive committee had to unanimously approve any purchase over $5,000,000.
THE DECISION
The procurement team received several bids that ranged in price and delivery capabilities. Three suppliers included an option to source and deliver Granular A material from a gravel pit, reducing the transportation cost but increasing the manufacturing cost (see Exhibit 3).
Some of the suppliers also imposed restrictions. Supplier 2 could only supply a maximum of 300,000 tons of Granular A from the gravel pit. Supplier 3 offered a 3 per cent discount if the total quantity awarded to them was greater than 600,000 tons. Supplier 4¡¯s total maximum capacity was about one million tons, while Supplier 7¡¯s total maximum delivery capacity was 300,000 tons.
After receiving all the bids, the procurement team worked with the suppliers to clarify and confirm the requirements and final pricing. After analyzing the data, they electronically submitted their recommendation (see Exhibit 4) to the executive committee¡ªthe final step before awarding the contracts. By the end of the day, all but one member of the committee had approved the proposal.
At first glance, the recommendation looked like it made sense. It was certainly a good solution, but was it the optimal solution? Planelles was aware that the total contract amount was significant and any savings would go directly to the bottom line.
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Source: Company files.
EXHIBIT 1: TYPICAL ROADWAY CROSS-SECTION
EXHIBIT 2: GEOGRAPHICAL AREAS IN 407 EAST EXTENSION PHASE 2
Source: Company files.
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EXHIBIT 3: GRANULAR BASE SUPPLY QUOTES: GRANULAR A & GRANULAR B TYPE 1 407 East Extension Phase 2 Project
Manufacturing of Granular A
Hauling from Quarry to Segment C1
to Segment D1a to Segment D1b to Segment C2a to Segment C2b to Segment D2
Manufacturing of Granular A
Hauling from Gravel Pit to Segment C1
to Segment D1a
to Segment D1b to Segment C2a to Segment C2b to Segment D2
Manufacturing of Granular B type 1
Hauling from Quarry to Segment C1
to Segment D1a to Segment D1b to Segment C2a to Segment C2b to Segment D2
Qualifications to the quotes:
Supplier 1 Supplier 2 $/ton $/ton
10.58 10.06 10.74 10.32 11.64 10.50 11.12 9.10 12.44 9.10 12.70 10.50
4.96 4.46 4.80 4.02 3.73 5.20
5.71 4.96 5.44 4.46 5.70 4.80 4.69 4.02 4.24 3.73 6.34 5.20
Supplier 3 Supplier 4 Supplier 5 Supplier 6 $/ton $/ton $/ton $/ton
6.75 7.85 6.95 7.85
9.10 9.50 9.50 11.00
9.10 9.50 9.50 11.50 10.30 9.50 9.50 12.00 9.25 10.25 10.25 12.00 9.65 10.25 10.25 13.00 11.25 10.50 10.50 13.25
8.50 13.00
6.00 6.25 6.00 6.00 5.36 6.25 6.00 5.25 6.00 4.75 5.36 6.75
6.10 6.28 6.18 6.95
9.75 6.00 4.70 7.15 11.65 6.00 4.70 6.90 10.95 5.36 4.70 7.15
9.90 6.00 3.50 6.15 10.30 6.00 3.50 5.65 11.90 5.36 5.50 7.65
Supplier 7 $/ton
3.35 3.55 2.60 3.95 4.85 2.60
3.35 3.55 2.60 3.95 4.85 2.60
Supplier 2: Granular A from gravel pit delivery capacity was limited to a maximum of 300,000 tons.
Supplier 3: If total quantity awarded was greater than 600,000 tons, there would be a 3% discount off all the prices. Supplier 4: Maximum capacity to deliver was approximately 1,000,000 tons.
Supplier 7: Maximum delivery capacity was 300,000 tons.
Source: Company files.
EXHIBIT 4: GRANULAR BASE PROPOSED AWARD: GRANULAR A & GRANULAR B TYPE 1
D1a (Quarry)
497,941 74,351
456,533 507,005
Granular A
Supplier 3 Supplier 2 Supplier 4
Granular B
Supplier 2
76,740 48,251
43,255 71,055 65,797 58,218
D1a (Gravel Pit)
520,675 482,096
TOTAL Qt (ton)
572,291 1,263,538 1,002,771
Total Cost $ 9,070,816 $ 19,054,929 $ 13,898,406 $ 3,279,434 $ 45,303,585
Source: Company files.
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