International Journal of Civil Engineering and Infrastructure

Vol. 2, No. 2, October 2022

Design Changes in A Short Duration Construction Project with Cost and Time
Boundaries: A Project Review

Rachmad Irwanto1
1Civil Engineering Study Program, Muhammadiyah Jakarta University,
Jl. Cempaka Putih Tengah 27, Jakarta. Indonesia
Correspondence email: [email protected]
Received: May 26, 2022 | Accepted: July 14, 2022

ABSTRACT
Design changes are inevitable in most projects. In many construction projects they may look not
too complicated to be executed in front of computer models. The actual situation turned out to be
the other way around. Apart from detailed changes in shop drawings, bill of quantity and
specifications, administrative works related to the project are quite considerations. These mounted
consequences would be more for short duration projects with government funding executed in the
near end book period. The allocated execution period for short duration projects is not usually
allowing rapid changes for the unexpected consequences. This paper presents what actually
happens inside the project management during the contract change order process.

Keywords: Design changes, short duration project, overruns, technical consequences,

administrative consequences, time period allocation, contract change order.

1. PRELIMINARY of changes and administrative requirements

for reports purposes. Whenever the cost and
Once, Heraclitus of Ephesus said “Change is time boundaries exist, complexity would
the only constant in life”. That opening also increase.
sentence explains what is being discussed in
this paper. Design changes during the This paper presents a review from an actual
execution phase are not considered ideal. completed steel work project. The project
However, contract change orders have been was executed successfully on-schedule
treated as close to normal in most within two months. The initial design of the
construction projects. The variation orders, structure, for some reasons, was decided to
in many cases, however small in overall be modified to address discrepancies
scale they are, could generate inevitable between site situations and shop drawings.
repercussions. It is then about how do we The project was government funded. It has
anticipate and to deal with them with strict budget and schedule limitations.
minimized side effects. Accommodated Budget limitations here mean any changes
modifications would include technical and must not exceed the initial budget, while
administrative works that in the end affect schedule limitation here due to the book and
costing due to variation work volume, payment systems means any extended
additional time to allow the implementation schedule would lead to more than one-year

1 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

late payment to both the contractor and the model. The proposed model has advantages
consultant. The execution schedule was in measuring potential risk generated by
started in early October while the design changes in construction projects.
completion was expected to be at the end of Through the use of design structure matrix
November. The only allowed contract (figure 1), the model can provide records of
change order is using the existing budget the reason for deviation. Stored outcome
with the same date of expected completion databases from this structure matrix can be
and without any new additional components an accurate source of references whenever a
other than specified in the existing bill of similar project is considering similar
quantity. The building is a part of facilities changes.
belonging to a government agency.
The paper [1], in some ways, may not be
This paper is commonly structured with an practical to some construction projects.
opening on presentation of contemporary Typical projects such as this paper discuss
operation management related to design are those with proposed changes that do not
changes during execution phase. Following tolerate changes in cost and in many cases,
the opening, this paper presents an do not take any time extension either.
elaborated review of implemented works Everything is usually rushed and everyone is
addressing the contemporary issues. A under pressure for extra work with no extra
closing discussion will then conclude this time. In that situation, administrative works
paper. tend to have more attention than actual
technical works which may as well cost
safety. Again, for more organized project
2. LITERATURE REVIEW
management, the proposed model is ideal
A paper by Hindmarch et al. [1], extensively for ensuring outcome, optimizing cost and
proposes idealization of what should be execution time. Yet, when situations get
within operation management of a project rushed, it is the communication among
before deciding to implement changes using people in the project that would open the
a construction design change management way out.

Figure 1. Example Process Map and Design Structure Matrix. [1]

2 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

in construction projects. The paper [3] re-

A paper by Irwanto [2], suggested in a emphasizes what has been the common
broader domain of what could be affecting suspect of who or what initially generates
construction project performance. It more performance disruption of typical
classifies constituting factors within broad construction projects through enforcing
economic environments during design and design changes. It concludes that among
execution phase from the operations internal and external factors within
management perspective for risk construction projects, owners are typically
recognition purposes. Another paper by the cause of design changes in construction
Yana et al. [3] presents more specific projects.
analysis of design changes affecting factors

Awarded winner

Order for
Execution

Design Review Initial Execution

Phase

Time & Cost Allowing only

Proposing Design existing item
Boundaries
Change material
Boundaries

Prep. Works New Design being

execution continue verified

No Boundaries met
yes Administrative
work overruns
Execution to
completion

Finish (FHO)

Figure 2. Flow chart of the project discussed in this paper

Papers such as [4], [5]and [6], agree to the effect of design changes on project
idea that design changes contribute to performances has actually no established
reduced project performance in terms of relationship for general construction.
either cost or time or both. Aslam et al. [4] Sequential studies starting from cost
specifically argues that the unfavorable overrun generated by design changes

3 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

could initially start establishing the consortiums. The people who sit in that
relationship. Abou Chakra [5], in his paper consortium are fairly assumed to come
presents estimations of cost overruns in from heterogeneous backgrounds in which
several project categories due to design not all of them understand technical
changes. The paper by Muhamad et al. [6] matters. Nevertheless, it is the owner’s
seems to agree with Yana [3], arguing that satisfaction that has the most point in
overruns in construction projects are measuring success of a project [10]. This
significantly instigated by the project could be related to why the bigger the
owners. Shoar et al. [7] presents a deeper project the more the chance of over budget
analysis using an Interpretive Structural [2].
Modeling Approach on the design changes
causes. The paper indicates that in many
3. THE DESIGN CHANGES
cases, design changes could be initiated by
either the owner, by the consultant, by the As introduced earlier about the discussed
contractor or even by a mutual agreement project, the design changes were initiated
among the three. Shoar et al. [7] however during its early execution phase. It is a
still agrees that the client -or this paper steel structure building for internal
calls it as the owner- is the root cause of warehouse use. A quick review during that
design changes. Theoretically, the findings phase concluded significant modifications
could help project managers to prepare were required mostly in structural design.
their operation management strategies to To add the design change reasons was a
better mitigate risks. More extensive request from the user for a position shift of
discussion on design changes is presented the building from its origin position per the
by Moayeri [8] in his PhD thesis. Moayeri shop drawings. A short pause of site
[8] embraces the idea that the owners are execution was then immediately ordered
where most design changes cases come following a mutual agreement among the
from and started his presentation on this consultant, the contractor and the owner
idea. The paper weighs on the design to allow time to decide whether the
change management by identifying and proposed changes were necessary.
quantifying the change’s ripple effect Boundaries then were the key fronts of
(overruns) on cost and time to absorb negotiations.
performance disturbance effect of design
changes using Building Information The first visible boundary was potential
Modeling (BIM). Some notes are presented cost overrun. Cost overruns were after the
by [9] related to BIM but overall does not proposed design changes. The owner
seem to diminish conclusions from [8]. maintained that there will not be any
additional cash to accommodate the design
Design changes, for many non-technical changes on the two-months-scheduled
people, may look as simple as editing a project, yet agreed that the changes were
character while typing on Microsoft Word. necessary. During the quantity analysis, it
What many people are not aware of is the turned out that the existing bill of quantity
series of effects behind the design changes. did not cover everything specified in the
This could be the reason why papers [3], shop drawing. We had already had a
[6]and [7] conclude that project owners in setback even before changing anything. In
many cases are those who initiated the that case, there were two cost limitations
design changes assuming less or no before us.
complex consequences. Also in those cases,
not all of the project owners are willing to It was then realized that near-end of year
cover the overruns caused by their execution has an unfavorable implication
proposed design changes. In larger to everyone. The accounting and budgeting
projects, the owners are usually systems by the government implicitly

4 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

indicates that any unexpected delays 4. MEASURED CHAOS AND

crossing a certain date in December would PREPARED CONSEQUENCES
lead to a very late payment processing. It
The loop works emphasized within the
may take a period of more than one year
blue discontinued line on Figure 2, and
through owner’s budgeting department
with considering description above may be
procedures. Preparation works at site
comprehended as a chaos. The author
were then ordered to carry on to catch the
however, argues it as a measured chaos. It
work progress targets.
was properly under control. All parties
contributed necessarily and coordination
The following situation did not really go as
among them was just as it should be.
expected. The quantity analyst staff
reported that steel fabrication works could
The contractor was actually the one with
not be further progressed and deliveries
“nearly victimized” status by the proposed
from suppliers were halted until the new
design changes. The contractor had no
design was approved. Not progressing
power to refuse but surely went out limb
here means the steel work was
without tolerance and understanding by
temporarily halted and the new bill of
the consultant and the owner. The
quantity needed to wait. A loop work (as
contractor had it through their third party
figured in Figure 2) of steel structure
supports facilitating the design changes
design and bill of quantity analysis took
process by the consultant while keeping
several days to complete. That was
the possible works at site progressing.
necessary to keep the new final cost and
Back-to-back coordination between the
the existing one had the least discrepancy.
consultant and the quantity analyst staffer
While the loop work was going on, both the
from the contractor along with
design engineer and the quantity analyst
confirmations from the owner were in
had to work their best to use items already
rush but still maintained the work flow
specified in the existing bill of quantity.
well. Staff from the owner were helpful in
The latter was required to maintain the
advising what administrative paper works
administrative reporting work from
should be prepared during the loop works.
unnecessary audits. On the other side, the
Another good thing happened was that the
pressure did not stop mounting for the
head staff unit from the owner who
structure engineer while carrying on the
oversaw the project is a highly qualified
new design. Ordering the site work to
technical person. It would have been
continue brought a little more pressure to
another issue to explain that design
the loop work. As the site preparation
changes do not get simply fixed only by
works continued according to existing
replacing one or two elements in a
design, the new design must also
computer model. Not everyone
accommodate limitations from the running
understands the implications of design
preparation works which some were
changes. Late progress by the contractor
actually those to change. Further
was understood and tolerated by all
discussions with the contractor would not
parties through conversion of non-
help it either. Stopping works though it
technical site activities (such as counted
was temporarily meaning the contractor
partial material deliveries) into work
paying idle labors without counted
progress to avoid administrative penalties.
progress used for payment term invoices
At the site, the rainy period in the city
which were already late.
poured almost every day during the
execution phase, slashing the normal
working hour half day almost every day.
Tolerance from the laborers willing to
work after hours were very appreciated to
keep up the progress.

5 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

author, this paper intends to look at those

After a little more than two weeks after causes without weighing any experience
design changes were proposed, the new judgments by assuming all the sources
design was finally approved and mutually above have the same risk potential.
agreed. The new design accommodated the
deficit in the previous bill of quantity and Sivunen et al. [11] present in their paper an
maintained the total value still within interesting discussion. This one views the
budget with negligible difference. The new changes from the point of view of the
design incorporated removal of several building owner. It concludes the analysis
unnecessary work items, volume through their specific Design Alliance
conversion without using new material method that major changes did not
items other than the ones already specified negatively affect the project they observed.
in the previous bill of quantity and Furthermore, the paper also noted
additional detailed modifications of statements from the user that the co-
structural drawings on steel works. working and user orientations in the
Overall, the new design does not change design process exceeded their
the building size, neither does the function expectations. The satisfactions came from
and has met the most requirements of all involving users in their design process. It
parties. does not say who initiates the changes but,
the final conclusion from the owner’s
perspective, provides hints that a good
5. PERSPECTIVE FROM RISK
cooperation solves the issues and
MANAGEMENT
therefore could minimize the potential risk
It can be fairly concluded that the due to changes.
discussed project is well completed.
Though final handover administration of It is rather substandard to know that
the project was shifted from initial design changes in a construction project as
schedule, the overall site works managed a source of risk can actually solve itself not
to catch the specified completion date. The by a scientific method but rather a social
shifted final hand over schedule was to collaborative attitude among people
allow excess administrative overruns due within the project. Scientific procedures, in
to the design changes. Everyone has finally this case, for example, are described as
expressed satisfaction on the execution. methods by Hindmarch et al. [1]. The
methods in [1], are arguably among the
Design changes with all the entailed best methods in formal and systematic
consequences could be a source of risk to ways. Meanwhile, the collaborative
achieving on time project completion. method is an alternative one to look at
Looking again at Shoar et al. [7], sources of construction projects as a socially inclusive
design changes can be from “Value community bordered by their perimeter
engineering”, “Scope uncertainty”, “Change fences and contract agreements. Risk
orders”, and “Constructability ignored in the management would need to consider these
design phase” and “Clients’ attitudes and facts in order to be efficient in measuring
experience”. The author has 15 years of site and planning.
work professional experience in civil
engineering construction. Using the
6. CONCLUSION AND FUTURE
author’s experience as an example of
RESEARCH
typical weighing judgment from an
experienced civil engineer would likely Ideal timeline of general construction
take the last as the major cause of design projects does not normally incorporate
changes. Though several papers [3], [4], [6] design changes. All designs, specifications
and [7] agree with the experience of the and time schedule would be better

6 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

prepared for the execution phase. Ideal, as staff generally work on their own terms
we all know in most cases however, is far and do not always comprehend technical
from real. That is where risk and insurance matters and issues during design and
are introduced. Design changes could execution.
happen anytime during the timeline of
projects. Design changes could be Looking at design changes from a risk
instigated by any signing party in a project. management perspective, design changes
There are always reasons to point out a could be one significant factor to consider.
scapegoat. Embracing this kind of risk With their overrun’s potential, they would
should at least ease the pressures due to bring too many consequences to skip
overruns. Yet, pressures always after those during risk planning. Yet, there are options
situations whenever unexpected things to look at design changes as part of regular
happen within a strict time and cost issues within a social community with an
boundaries. Many discussed cases from attitude to understand each other. Design
our references [3], [6], [7] and [8] analyzed changes should not be a significant matter.
who initiated the design changes and
methods of how to mitigate the chain effect 7. ACKNOWLEDGEMENT
of design changes to the completion The project is described as an executed
progress performance. Should the focus of work package of Garage Workshop
those projects be the project completion, Development from The South Jakarta City
from our project case we learn that Municipal Government. The engineering
understanding, cooperative attitude and was designed and supervised by P.T. Karya
tolerance among the signed parties Cipta Konsultan Nusantara. The Author
working on the project can overcome the thanks to the P.T. Karya Cipta Konsultan
overruns. Nusantara. And the South Jakarta City
Municipal Government for the
Design changes may sound simple for opportunity.
those assuming that way and we all know
that does not represent the reality. Future References
research related to issues in this paper
could be interestingly rewriting the
[1] H. Hindmarch, A. W. Gale and R.
situation in a game theory algorithm. We
Harrison, "A Proposed Construction
can expect the algorithm would constitute
Design Change Management Tool to
multiple players with win-win solutions Aid in Assessing the Impact of Design
within time and cost boundaries. Changes," in Change Management,
Risk Management, Decision Making,
For projects with a public funding source, Construction, 2010.
administrative work overruns due to
[2] R. Irwanto, "What Actually Drive
proposed design changes that lead to Construction Project Performance
contract change order could have more from Operations Management
implications. Such an example from our Perspective," International Journal of
case, after the design changes decision was Civil Engineering and Infrastructure
approved, though both overall project (IJCEI), vol. 2, no. 1, 2022.
value and time completion were fairly kept
[3] A. A. G. A. Yana, R. H. A. and M. A.
the same with the one before proposed Wibowo, "Analysis of Factors
design changes, contract change order was Affecting Design Changes in
still implemented. That was due to detailed Construction Project with Partial
changes in shop drawing and volume in bill Least Square (PLS)," 5th International
of quantity. Financial auditing from the Conference of Euro Asia Civil
auditors usually puts more focus on neat Engineering Forum (EA CEF-5), pp. 40-
administrative paperwork. The auditing 45, 2015.

7 | IJCEI
International Journal of Civil Engineering and Infrastructure (IJCEI) | Volume xx Number x | [name_month] 20xx

[4] M. Aslam, E. Baffoe-Twum and F.

Saleem, "Design Changes in
Construction Projects - Causes and
Impact on the Cost," Civil Engineering
Journal, vol. 5, no. 7, 2019.
[5] H. Abou Chakra, "The Impact of
Design Changes in Construction
Projects on The Cost Charged by
Consultant Offices," BAU Journal -
Science and Technology, vol. 1, no. 1,
Dec 2019.
[6] N. H. Muhamad and M. F. Mohammad,
"Impact of Design Changes in
Construction Project," Malaysian
Journal of Sustainable Environment
(MySE), FSPU, UiTM Perak, 2018.
[7] S. Shoar and N. Chileshe, "Exploring
the Causes of Design Changes in
Building Construction Projects: An
Interpretive Structural Modeling
Approach," Sustainability, vol. 13, p.
9578, 2021.
[8] V. Moayeri, Design Change
Management in Construction Projects
Using Building Information Modeling
(BIM) - PhD Thesis at Concordia
University, Montreal, Quebec, 2017.
[9] M. Juszczyk, A. Tomana and M.
Bartoszek, "Current Issues of BIM-
Based Design Change Management,
Analysis and Visualization," Creative
Construction Conference 2016, vol.
164, pp. 518 - 525, 2016.
[10] S. E. Ulukan, "How Changes impact
Construction Project Risks," in New
Approaches in Contemporary
Architecture and Urbanism, 3rd
International Conference of
Contemporary Affairs in Architecture
and Urbanism (ICCAUA-2020); DOI:
10.38027/N82020ICCAUA316296,
2020, pp. 69-84.
[11] M. Sivunen, J. K. Kajander, J. Kiiras and
J. Toivo, "Managing Risks Related to
Functional Changes by Design
Alliance," Creative Construction
Conference 2014, vol. 85, pp. 473 -
481, 2014.

8 | IJCEI