Connect & Construct Building Value through ICT D4.2 Policy Recommendations for Mass Market Adoption of the Connect & Construct framework
This project was carried out for the European Commission, DG Enterprise and Industry, by: Capgemini Consulting Roy Mierop, Sander Oudmaijer, Trudy Tol, Kris Spitsbaard STÚ-K Tomáš Vimmr, Otto Villatoro Arcadis Robert Kroon, Bram Mommers AUEB-RC/TRANSLOG Michael Madas Alliantis Hans van Hulst Bycon Associates Marion Bywater Public Cinema Peter Kasbergen Independent consultant Konstantinos G. Zografos Legal notice: This document has been prepared for the European Commission. However, it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. European Union, 2014
Contents 1 Introduction... 4 2 Methodology... 5 3 Policy Recommendations... 6 3.1 Challenges and opportunities for mass-market adoption... 6 3.1.1 Challenges... 6 3.1.2 Opportunities... 9 3.1.3 General principles for stimulating mass market adoption of the framework 9 3.2 Up-scaling pilot demonstration action to mass market adoption by establishing public-private partnerships... 10 3.3 Use of available policy implementation instruments... 12 3.4 Monitoring the action roll out at local and national level... 16 3.5 Fitting awareness raising activities and industry-based training to the structure and dynamics of the construction sector... 18 References... 21
1 Introduction This document has been prepared within the framework of WP4/Task 4.2 ( Define policy recommendations to make a governance scenario work and to up-scale the pilots to mass market adoption ) of the Connect & Construct (C&C) project funded by the European Commission. The objective of the document is to present policy recommendations to the European Commission and the construction sector for the massmarket adoption of the C&C framework. The policy recommendations are aimed at sustaining and leveraging the C&C framework, notably the up-scaling of actions from the pilots to mass-market adoption in Europe, after the project has ended (from 2015 onwards). The recommendations are based on the findings of the pilot projects participants and the C&C governance model. Input was also collected from the market analysis and stakeholders during the realisation of the project. In compliance with the project assignment, specific topics that will be addressed in this document are: the possible establishment of public-private partnerships, the use of currently available policy implementation instruments of the European Commission, the monitoring of the roll out of the action from the pilots at local and national level, including the measurement of business benefits, and the way awareness raising activities and industry based training could optimally fit the structure and dynamics of the construction industry.
2 Methodology The methodology used to determine the policy recommendations on mass-market adoption of the C&C framework is visualised in figure 1. Figure 1. Methodology for determination of policy recommendations The usefulness and usability of the C&C framework has been demonstrated and validated in practice in a number of pilot projects with construction sector companies from several EU countries, of which many where SMEs. Subsequently, the pilots were carefully evaluated by the organisation of two evaluation meetings and by setting up an evaluation questionnaire that assessed the usability and ease-of-use of the C&C framework. Based on these findings, the findings from the market analysis, and the input collected from sector stakeholders, challenges and opportunities for mass-market adoption are formulated. The challenges were considered as barriers for mass-market adoption, while the opportunities were considered as enablers for mass-market adoption. In the end, the policy recommendations aim at overcoming the challenges and utilising the opportunities. The recommendations will specifically look at the use of public-private partnerships, the use of available EC policy implementation instruments, the monitoring of the pilot action roll out, including the measuring of business benefits of the C&C framework, and industry based awareness raising and training, taking into account the governance model.
3 Policy Recommendations In this section the policy recommendations are presented. Based on the C&C framework, the recommendations aim at up-scaling the pilot actions to facilitate mass-market adoption and to utilise the Governance Group scenario to its full potential. In paragraph 3.1 general challenges and opportunities for mass-market adoption are described. Derived from the C&C market analysis and stakeholder contacts these can be seen as general conditions that should be taken into account regarding the adoption of the digital exchange of information. From paragraph 3.2 onwards, policy recommendations are provided in four themes: 1 Use of Public-Private Partnerships; 2 Use of available EC policy implementation instruments; 3 Monitoring of the pilots action roll out; 4 Fitting awareness raising and industry-based training to the structure and dynamics of the construction sector. 3.1 Challenges and opportunities for massmarket adoption The following challenges and opportunities to mass-market adoption of the C&C framework and pilot actions are determined. 3.1.1 Challenges SMEs have difficulties with learning how to use ICT solutions Important aspects affecting the user acceptance and adoption of ICT solutions are the effort/time required to get acquainted with the technology/system and the efficiency and speed of performing its intended operations and functionalities (e.g., data/information exchange). Reasonable learning effort should be a key requirement for ICT solutions in construction, in order for SMEs with low familiarity and limited in-house ICT expertise to cope with the digital complexity. Stable and fast Internet is not available everywhere in Europe The efficiency and speed of a technological application/system constitutes a fundamental performance requirement, to for instance handle large files or 3D models that are often used in the various lifecycle phases of a
construction project. This depends strongly on the existence of a stable and reliable electronic communication infrastructure (e.g. fixed/broadband Internet access, LAN/WLAN, VPN, Intranet/Extranet). Therefore, the existence of a stable and fast Internet connection represents an important requirement to facilitate the digital integration of construction supply chain actors, and notably SMEs. This challenge was also brought forward in the market analysis and the stakeholder workshop on business scenarios within the C&C project of July 2013. Construction companies are unaware of the potential benefits of ICT Another critical factor determining the potential acceptance and actual use of ICT, is the degree to which it can deliver certain tangible benefits to users (e.g. time savings, cost savings, reduction of problems/errors in data exchange, increasing market potential and innovation capacity, strengthening strategic business relations). The results of the C&C Market Analysis revealed that SMEs considered the benefits related to the increase of market potential and innovation capacity as more important compared to large companies. In addition, the results of the C&C pilots emphasised the importance of benefits related to the streamlining of the data/information exchange process among multiple actors participating in the construction supply chain. In the end, effective policies that aim to increase the adoption of ICT in the construction sector should communicate and raise awareness on the specific benefits that are particularly applicable to different company profiles/sizes. The level of ICT expertise of construction companies, notably of SMEs, differs widely A substantial part of the SMEs in the construction sector has only limited expertise in the use of ICT in their business process. What became clear is that the higher the level of expertise, the higher their perception was on the ease of use, and more importantly, the usefulness and benefits of ICT. The latter highlights the importance of awareness raising and training activities as a means of promoting the effective and efficient use of ICT solutions in construction. In addition, sector experts reveal that the Technological Readiness (i.e. can I use ICT?) of a company is more important for the adoption of ICT than the Technological Effectiveness of ICT systems (i.e. can ICT make my business processes more efficient?).
In the end, awareness on the impact of ICT benefits and financial returns realised by investing in ICT solutions has the highest importance in determining overall Technological Readiness. SMEs struggle with the affordability of ICT solutions The market analysis showed that construction companies, and especially SMEs, have limited resources available that they can devote to ICT solutions. SMEs consider the lack of financial resources as one of the main barriers towards adopting ICT. There are not many customised and construction-specific ICT solutions Adaptability and customisability of ICT solutions is a factor that affects the effectiveness of the ICT solution as a whole. The availability of customised ICT solutions is a key factor affecting the company s ability to adopt a given ICT solution. In the market analysis it was found that SMEs feel there is a lack of customised and construction-specific ICT solutions. Construction companies struggle with interoperability between different ICT solutions and standards Given their relatively low digital maturity, on the short run, SMEs will most likely not be confronted with issues of interoperability. However, looking at the larger companies and those who are digital mature, interoperability is more and more manifesting itself as a key challenge. Hence, while it is not a key challenge for the majority of SMEs now, it will become in the future. The stakeholder workshop on business scenarios within the C&C project in July 2013 also revealed that participants from the design phase are currently experiencing interoperability problems in the digital exchange of information. Currently, due to a lack of common accepted standards (e.g. IFC), construction companies face different standards that result in interoperability problems when exchanging information and data. The adoption of ICT standards is voluntary and market-driven (e.g. when participating in a project that requires the use of certain ICT solutions and standards). In addition, vendors are inclined to support their own, native proprietary formats and standards. This causes construction companies to use different standards in their organisation, giving rise to interoperability problems. Also, SMEs do not have an incentive to adopt standards due to the project-based organisation of the sector.
These barriers to the adoption of ICT standards in the construction sector are mainly related to the lack of a global actor and legal framework to enforce and regulate the use of ICT standards in construction projects. Nevertheless, several national building agencies are already developing and applying information requirements regarding the delivery of as-build information files by contractors at the completion of building projects. 3.1.2 Opportunities Some developments are considered as enablers for mass-market uptake of ICT in the construction sector and could, when properly used, stimulate the adoption of the C&C framework. Two opportunities were seen as particularly important: Public sector is a key client for the construction industry The public sector is identified as a key client in the construction sector. Public sector clients currently purchase more than 40% of the total construction output, including buildings and civil engineering. Public sector clients are key actors in driving market requirements and innovation, such as the implementation of digital information exchange. Increase of public-private partnerships is expected More collaborative and long-term relationships between enterprises are expected. These relationships will create a fertile environment for spreading emerging voluntary arrangements for collaboration (e.g. project partnering, strategic partnering, framework arrangements, alliances, construction consortia). This development is expected to increase the intensity of information exchange and raise the need for digitalisation. Furthermore, the scarcity of public financial resources in conjunction with the public sector s intent of sharing the risks and responsibilities of investment in construction projects is expected to increase the number of public or private projects that are funded and undertaken by a partnership of one or more private enterprises and the public sector. This offers more opportunities to share experience on smart use of ICT and to increase the efficiency of collaboration by digital exchange of information. 3.1.3 General principles for stimulating mass market adoption of the framework Given the challenges, the character of the construction sector and the complexity of standardisation, we recommend applying the following
three general policy principles to stimulate mass-market adoption of the C&C framework. The first principle is to use existing communication networks that are active in the construction sector as much as possible. Examples of these networks are: PuRE-NET: the network of public sector clients for buildings. CEDR: the network of public sector clients for infrastructure. BuildingSmart: the network of public and private organisations involved in the digitalisation of building information. Sector organisations (for example FIEC, EBC): these organisations can be considered as vast contact networks of construction sector companies. Educational institutes: these organisations hold contact networks of future construction sector professionals. The second principle is to involve clients, notably public sector clients, to participate in stimulating the use of ICT for innovation of business processes and collaboration in the construction sector. Finally, the third principle is to stimulate the availability of low cost ICT tools for digital exchange of information for SMEs in the construction sector. 3.2 Up-scaling pilot demonstration action to mass market adoption by establishing publicprivate partnerships In several EU Member States initiatives have been taken to organise public and private parties to collaborate on the development of standards, tools and protocols for digital exchange of information in building projects. These initiatives are necessary since there currently is a lack of a legal framework for information standards for digital information exchange in the construction sector. Examples of such initiatives are: The BIR (Building Information Counsel) in the Netherlands; BuildingSmart with chapters in several EU countries. On a European level, a CEN work group on BIM is being created. Involving this new organisation in the process of creating support for the adoption of information standards would be sensible.
The C&C framework contributes to the activities of these public-private partnerships. Members of these partnerships are also participating in the C&C Governance Group. As explained before, the scarcity of public financial resources in conjunction with the public sector s intent of sharing the risks and responsibilities of investment in construction projects is expected to increase the number of public or private projects that are funded and undertaken by a partnership of one or more private enterprises and the public sector. These public-private partnerships offer the opportunity to disseminate and apply the C&C framework and open up opportunities for collaboration with SMEs. Special emphasis must be placed on publicprivate partnerships in the post-construction lifecycle phase (e.g. maintenance). This phase has the longest turnaround time and largest financial volume compared to the other construction phases and holds promising business opportunities for SMEs. Many construction sector SMEs are participating in activities in the maintenance of buildings and infrastructure. The character of these activities connects to the capabilities of SMEs. Public sector clients in general are in favour of increasing competition by stimulating the participation of SMEs. Recommendations Support national collaboration initiatives in the development of standards. Stimulate the connection between the national initiatives and the CEN activities. Involve the C&C Governance Group in using its connections with existing public-private partnerships to promote the C&C framework on a national scale. Involve the Governance Group in using its connections with public-private partnerships to expand the implementation of the C&C framework. Stimulate the up-scaling of the use of the C&C framework, notably the participation of SMEs during the post-construction (e.g. maintenance) phase of the building life cycle, by issuing a communication document regarding the benefits of smart use of ICT and the usefulness of the C&C framework of principles and rules.
3.3 Use of available policy implementation instruments This section described currently available and running European policy instruments of the European Commission that can be used for sustaining and leveraging the C&C framework. The section describes the instruments, which are relevant in the light of the goal of C&C: stimulating industrial innovation in the construction sector through smart use of ICT. A policy instrument was considered relevant when it focuses on supporting the economic performance of companies (notably SMEs), stimulating the uptake of ICT or on stimulating innovation. Relevant policy instruments are: Horizon 2020: ICT Innovation SME instrument The EU Framework Program for Research and Innovation covering the period 2014 2020 has a budget of 80 billion Euros. The goal is to ensure Europe produces world-class science, removes barriers to innovation and makes it easier for the public and private sectors to work together in delivering innovation. Horizon 2020 supports innovative SMEs through a dedicated SME instrument. The aim of the SME instrument is to fill the gaps in funding for the early stages, Research and Innovation and accelerating the exploitation of innovation. This instrument addresses the need of financing of internationally oriented SMEs that try to implement innovative ideas with a high risk, but with a high potential. It aims at supporting projects with a European dimension that lead to radical changes in how business (e.g. product, processes, services, marketing etc.) is done. It launches companies into new markets, promotes growth, and creates high returns of investment. The SME instrument addresses all types of innovative SMEs to promote growth champions in all sectors. The European Regional Development Fund The EU regional policy is financed by three main funds, the European Regional Development Fund (ERDF), the European Social Fund (ESF), both referred to as Structural Funds and the Cohesion Fund (CF). These funds are based on the principles of co-financing and shared management. The ERDF is considered relevant in stimulating the uptake of ICT in the construction sector and in supporting the objectives of C&C.
The ERDF supports the development and structural adjustment of regional economies, including the conversion of declining industrial regions. Funds can either be allocated as grants or financial instruments. In the context of SME and entrepreneurship policies, the following thematic objectives of ERDF are of particular interest in relation to the C&C framework: 1. Strengthening research, technological development and innovation; 2. Enhancing access to and use and quality of Information and Communication Technologies (ICTs); 3. Enhancing the competitiveness of SMEs; 4. Promoting employment and supporting labour mobility; 5. Promoting social inclusion and combating poverty. Based on these objectives concrete activities that can be financed under the ERDF are: Research and innovation infrastructure (R&I), R&I excellence, business R&I investment, product and service development, technology transfer, social innovation and public service applications, demand stimulation, networking, clusters and open innovation through smart specialisation; Technological and applied research, pilot lines, early product validation actions, advanced manufacturing capabilities and first production in Key Enabling Technologies, diffusion of general purpose technologies; Development of ICT products and services, e-commerce; ICT applications for e-government, e-learning, e-inclusion and e- health; Entrepreneurship, economic exploitation of new ideas and creation of new firms; new business models for SMEs, in particular for internationalisation; Energy efficiency and renewable energy use in SMEs; Development of business incubators and investment support for self-employment and business creation; Support for physical and economic regeneration of deprived urban and rural communities; support for social enterprises.
Regional Policy Special Support Instruments: JEREMIE Joint European Resources for Micro to Medium Enterprises (JEREMIE) is an initiative of the European Commission developed together with the European Investment Fund. It promotes the use of financial engineering instruments to improve access to finance for SMEs via Structural Funds interventions. Digital Agenda for Europe The Digital Agenda for Europe (DAE) aims to reboot Europe's economy and help Europe's citizens and businesses to get the most out of digital technologies. It is the first of seven flagships initiatives under Europe 2020. The DAE contains specific goals that encapsulate the digital transformation that the European Commission wants to achieve: the entire EU to be covered by broadband by 2013 the entire EU to be covered by broadband above 30 Mbps by 2020 50% of the EU to subscribe to broadband above 100 Mbps by 2020 50% of the population to buy online by 2015 20% of the population to buy online cross-border by 2015 33% of SMEs to make online sales/purchases by 2015 the difference between roaming and national tariffs to approach zero by 2015 to increase regular internet usage from 60 % to 75 % by 2015, and from 41 % to 60% among disadvantaged people to halve the proportion of the population that has never used the internet from 30 % to15 % by 2015 50 % of citizens to use egovernment by 2015, with more than half returning completed forms all key cross-border public services, to be agreed by Member States in 2011, to be available online by 2015 to double public investment in ICT R&D to 11 bn by 2020 to reduce energy use of lighting by 20% by 2020.
Small Business Act: regional implementation The Small Business Act (SBA) for Europe, adopted in June 2008, reflects the political will of the Commission to recognise the central role of small business and to codify it in a coherent framework for the EU and its Member States. It aims to improve the fundamental approach to entrepreneurship in our society and to anchor the Think Small First principle in European politics and administration. The slogan Think Small First should become the guiding principle for all political and administrative decisions in the EU and in the Member States. The SBA should also help companies to grow stronger and more quickly. European SMEs should receive better, more targeted support and encouragement, so that in the long term they can maximise their potential for creating sustainable growth and more jobs. The SBA applies to all companies that are economically independent, have fewer than 250 employees and an annual turnover of less than EUR 50 million and/or a balance sheet total of less than EUR 43 million. The SBA includes a variety of measures the EU intends to use to strengthen small and medium-sized enterprises (SMEs) from facilitating financing, better access to public procurement procedures, through to encouraging start-ups by women. Other areas of the SBA in which the regions can also support SMEs include upgrading skills and innovation and facilitating access to knowledge. One approach that every region can adopt is to support the formation of SME networks, so that they can submit joint tenders or tap into export markets as a network. COSME COSME is the EU programme for the Competitiveness of Enterprises and Small and Medium-sized Enterprises (SMEs) running from 2014 to 2020 with a planned budget of 2.3 billion. COSME will support SMEs in the areas of: Better access to finance for Small and Medium-sized Enterprises (SMEs); Access to markets; Supporting entrepreneurs;
More favourable conditions for business creation and growth. Recommendations There are many European policy instruments available that can be used by SMEs to stimulate the uptake of ICT and to stimulate innovation in the sector. These instruments can be used by individual SMEs, groups of SMEs, or the C&C governance group, to further promote the C&C philosophy. 3.4 Monitoring the action roll out at local and national level C&C Governance Group The C&C Governance Group plays a central role in the dissemination and implementation of the C&C framework throughout Europe from 2015 onwards. Representatives of all sector stakeholders are participating in the Group. Due to their vast contact networks the Governance Group has a wide reach in the construction sector in Europe. Examples of these contact networks are PuRE-net and CEDR, the networks of governmental building agencies and infrastructure agencies, and BuildingSmart. The participating sector organisations have vast contact networks too. It is these contact networks that enable the Governance Group to disseminate the C&C framework on all levels (national, regional and local). The Governance Group also is in the position to gather information about the uptake of ICT in the construction sector and the progress of the implementation of the framework by SMEs. This is valuable information to evaluate which action is producing effect and which action is not. C&C website The C&C project currently makes use of a website to communicate about the project developments, disseminate information about available ICT tools and protocols for digital collaboration and provide supportive tools for SMEs (for instance a self assessment tool to assess the digital maturity of construction companies). In the future, it could be used as instrument for gathering and disseminating monitoring information and as a platform for communication actions of the Governance Group. If necessary, a more
targeted sections for specific company types or languages could be incorporated. This makes communication more target group specific. Monitoring themes Taking into account the challenges of construction companies, notably SMEs, the monitoring action should focus on (1) the availability of stable and fast internet all over Europe, (2) the digital maturity of construction sector companies, notably SMEs, (3) the development of key conditions for ICT uptake, (4) the development of interoperability, and (5) the development of information standards. Monitoring of developments on these themes provides information that will be used to decide if action is necessary to continue or accelerate both the uptake of ICT in the construction sector and the implementation of the C&C framework. The monitoring process itself should not cause an administrative burden for its members. Taking into account the dynamics of ICT driven innovation in general, swift action could be called for to support SMEs in utilising new ICT tools or functionalities. This underlines the need for direct exchange of information between parties involved. The C&C website could provide a useful platform for this communication. Evaluation of the pilot projects and analysis of showcases has revealed business benefits indicators. To further specify tangle benefits of ICT for especially SMEs, there should be clarity about the benefits of ICT and to mass-market adoption of the C&C framework. Already during the C&C project Key Performance Indicators (KPIs) are formulated to indicate the benefits of the C&C framework for organisations. Indicators of operational nature are: Time savings; Cost savings; Reduction of errors in data exchange. To further monitor the benefits for SMEs, it would be useful to also indicate the benefits from a strategic point of view. Example indicators of strategic nature are: Increase of market potential; Increase of innovation capacity; Strengthening of business relations.
These indicators can be used as starting base for measurement. Another recommended method to establish business benefits is to draw up a business case. The comprehensive insight in benefits and costs of ICT use in business processes contributes to the development of a more mature perception of users with respect to the returns of ICT. Recommendations Involve the C&C Governance Group in the monitoring of the pilot action roll out, utilising the contact networks of the members of the Governance Group, notably the public sector clients, construction industry sector organisations and construction companies. Use the C&C website as an instrument for gathering and dissemination of monitoring information on national, local and regional level. Based on evaluation results, a further development of the website might be necessary in the future. Further elaborate on the benefits of the uptake of ICT, especially on the benefits of the C&C framework, by identifying strategic indicators as benefits and by the establishment of a comprehensive business case with respect to the returns of ICT. 3.5 Fitting awareness raising activities and industry-based training to the structure and dynamics of the construction sector The construction sector was carefully analysed in a C&C market analysis. In addition, input was collected from sector experts. In the end, C&C found that the construction industry is characterised by: a vast business population of small SMEs that in general lack the financial and human resource capital to substantially invest in ICT; companies with different digital maturity levels; geographical inequalities regarding the availability of modern ICT infrastructure; information requirements that differ in each phase of the construction life cycle.
The C&C framework is applicable to companies active in each phase of the Construction life cycle and in each stage of their digital maturity. To get the framework widely adopted one has to take into account the specific characteristics of the construction sector. In that respect, a differentiated approach, distinguishing specific target groups of companies, is expected to be most effective. To get an appropriate level of segmentation one has to take into account the digital maturity of companies and the business scenarios that represent the most intensive collaboration relations between companies. Digital maturity The digital maturity of a company indicates its capability to use ICT effectively in its operational activities. The C&C website contains a tool with which companies can assess their digital maturity. In the tool, four development levels have been distinguished: starter, observer, innovator and transformer, where starters only have limited experience with the use of ICT, while transformers have much more ICT experience and are changing their business processes to maximally reap the benefits of ICT. In the end, the maturity level of a company gives an indication of its perception of the usefulness of ICT and its receptiveness for implementing the C&C framework. The digital maturity level can be used to determine the technical content of information and training needed to raise the ICT awareness of construction sector companies. Business scenarios The need for digital exchange of information between construction sector companies is to a great extent determined by their collaboration. Intensive collaboration requires frequent exchange of much information. In the C&C stakeholder workshop of July 2013 three business scenarios were distinguished within the construction value chain, each with its own dynamics and information requirements: the pre-construction scenario, the construction scenario and the post-construction scenario. In the preconstruction scenario collaboration and information exchange revolve mainly around design activities. In the construction scenario the physical realisation of the building or infrastructure and the activities on building sites are driving collaboration and information exchange. In the postconstruction scenario the driving force for collaboration and information exchange is the whole of activities regarding real estate management and maintenance.
The business scenarios give an indication of the intrinsic content of information that is exchanged and of the work processes that are to be supported by digital information exchange. Based on these two criteria, an effective approach to the dissemination of information and industrybased training can be developed. With this approach, construction sector companies are addressed in a way that fits their understanding of the benefits of ICT that can be understood in the context of their actual work practice. The Governance Group harbours the knowledge, experience and contact networks that enable swift elaboration of awareness raising actions and industry based training, geared towards stimulating the adoption of the C&C framework in the whole construction sector in Europe. Think especially of the presents of different Universities and their capabilities to offer a web based training module based on the C&C Principles and Rules. The C&C website offers a suitable platform for specific communication on the need for information and training to reap the benefits of digitisation. Recommendations Apply a differentiated approach for awareness raising and industry-based training, distinguishing target groups based on business scenarios and their level of digital maturity. Utilise the capabilities of the C&C Governance Group and the community of pilot participants to elaborate on the requirements for awareness raising actions and training. Use the C&C website to facilitate target group directed discussion and exchange of knowledge about the implementation of the C&C framework. Stimulate educational institutes in the field of construction to use the C&C framework in their education programmes. Involve the C&C Governance Group in connecting with relevant educational institutes.
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