Malaysia
Prepared by
MINISTRY OF HEALTH
eae
Final Report:
1. MoH Operational & Health Facility Planning
Policies
2. Review Of Design & Building Standards of Hospital
3. Development Of Buciget Estimation Methodotogy
uly 2006
: Ministry of Health, Malaysia
World Health Organization
* QC Mediconsule
aciconsl Planning & Con
Atafs/8 One Armpare Bu
Solan Ampang thames 2/2
ting Services Sd, Bhd. (4494861)
ns Ave.
12000 Ampang, Selangor, Malaysia
Tot +603-4283 3200
Fox: ++60:3-4259 3199CONTENT
(ECUTIVE SUMMARY ..
!
|
ines Pe
Mediconsule
INTRODUCTION ..
ASSESSMENT OF HEALTH POLICI
Stans,
Review oF ExisTING DOCUMENTS...
REVIEW OF DESIGN & BUILDING STANDARDS FOR HOSPITALS ...
3.1.1 NETTROOM AREA (NRA)..
3.1.2. Nerr DEPARTMENT AREA (NDA)
3.1.3. GROSS DEPARTMENT AREA [GDA]
3.1.4 ENGINEERING
31.5 eave.
3.1.6 GROSS BULDING AREA (BGA)
3.1.7 BULDING EFRCENCY..
3.2.1 DEPARTMENT CIRCULATION FACIORS..
9.2.2 BULDING CIRCULATION FACTORS
‘Connwors..
3.3.1 CoRmDOR WIDTH GUDEUNES.
Room Sizes
3.4.1 ROOMSIZE COMPARISON.
3.4.2 GENER ROOM UST FOR HOSPITAL OF 500 BEDS AND OVER..
DEVELOPMENT OF BUDGET ESTIMATION METHODOLOGY...
DEVELOPMENT PLANNING PROCESS,
PROCESS For OBTAINING DEVELOPMENT BUDGET APPROVAL FROM CENTRAL AGENCIES EPU,
TREASURY ane 16
‘Current METHODS FOR CREATING PROJECT BUDGET BY Mo!
REVIEWING CURRENT PROCESS FOR PREPARING PROJECTS/ PROGRAMMES FOR IMPLEMENTATION.
IWRMKS 7
1 FLOWCHART OF PROJECT IMPLEMENTATION PROCESS,
4,44.2. CURRENT METHODOLOGY OF BUDGET ESTIMATION,
44.3 COSTPER BED METHODOLOGY ..
44.4 PROCESS OF CONTROLLING COSTS DURING PLANNING AND DESIGN STAGE.
4.5 SHORTCOMINGS IN SYSTEM OF PROJECT IMPLEMENTATION.
a6 RECOMMENDATIONS..
4.6.1 RECOMMENDATON
4.6.2 RECOMMENDATION 2.
46.3 RECOMMENDATION
. 4.6.4 RECOMMENDATION 4,
46.5. RECOMMENDATION
sFERENCE ..
BR BRRBNE
ACKNOWLEDGEMENT ..
ANNEXES
“Annex 1 ; Documentation of policies related to design & engineering
‘Annex 2 : Documentation of policies related to equipment and vehicles
Annex 3 : Documentation of policies related to operation
Annex 4: Documentation of policies related to other
‘Annex § : Summary Schedule of Areas of Six Malaysian Hospitals by Department
‘Annex 6 : Generic Room Ust for Hospital of 500 Beds & Over
sty 2006 @ Pagybbreviation
Hi
eno
(&K Mediconsule
Gross Building Area
‘Construction Industry Development Board
Economic Planning Unit
Gross Department Area
Inter-Agencies Planning Groups
Jabatan Kerja Rayo
Mediconsuit Planning and Consulting Services Sdn. Bhd.
Ministry of Finance
Ministry of Health
Nett Department Area
Nett Room Area
Schedule of Areas
World Health Organisation
ule 2
pee PosEXECUTIVE SUMMARY
This report is a compilation of Report Number 1 to 3 of the Assessment of Design
fences for Public Heaith Care Facilities for Malaysion Hospitals.
Report 1 covers the collecting, reviewing and compiling of MoH planning policies related
Ff) cesigns engeetng
(ii) equipment & vehicles, and
(iil) operations and (iv) other general policies.
port 2 focuses on the efficiency of health facility planning and design in terms of
Ice by building, departments, and crifical rooms.
Report 3 analyses MoH's cument practice of project budget estimates and suggests
altemative methodology.
rot Report
& Mediconsule1,
V1
INTRODUCTION
Background
diconsult Planning & Consulting Services Sdn. Bhd. (Mediconsult) was invited by the
inistry of Health (MoH) - Planning and Development Division, to assess the design
iciencies of goverment heaith facilities in Malaysia.
objectives of the assessment are:
o
a
sed
Compile current operational policies related to design. engineering, equipment
‘and operation;
Evaluate the spatial efficiency of health facility design by health foctity,
departments, and ctitical rooms;
Develop a methodology for deriving of budgetary project cost for future health
facies:
‘on the funds avaiable, ihe Consultancy will initially concentrate on Project
Pemning Methodology as agreed from the discussion with the MoH. The implementation
for Methodology for Macro Health Services and Room Data Planning tools will be
identified after further discussion with the Ministry of Health.
2
I
Based
ooocc
jvc Repon
QC Mediconsult .
Methodology
‘on documents received and discussions held with agencies and institutions
involved In the planning of health care faciities, the following process for the assessment
has been applied:
Collecting, reviewing and compiling of MoH planning policies:
Review current design and building standards and norms:
Study of various hospital concept design:
Study design concepts of various hospital departments in Malaysia:
Comparative study of room areas of various hospitals in Malaysia and other
counties;
Study of implication of engineering design on spatial requirement;
Review current methodology employed by MoH for facility budget estimation;
Investigate issues of developing methodology for deriving at project budgetary
costs:2 ASSESSMENT OF HEALTH POLICIES
ah Status
THis ossessment covers the collating, reviewing and compiling of MoH planning policies.
THe majority of these have been provided by the MoH and some by JKR. Within the
framework of the project it Is not the responsiblity of the consultant to evaluate and
‘comment on the health policies. The evaluation of the health policy may be a scope for
future assignments ond the consultant may propose fo further develop ond standardise
policies.
2 Review of Existing Documents
‘On the whole. there have been many health facility planning related documents
produced over the past decade by the vorious departments of the MoH. The
documents largely consist of guidelines, norms or policies on health facility design ond
engineering and equipment including vehicle ond operations.
THe background for the various guidelines is the “Gorispanduan Perancangan
Kemudahan Kesihatan Rancangan Malaysia Ke-8, Jilid | & 2" (Guidelines for Planning
yalth Facilities under Eighth Malaysia Plan, Volume 1 & 2) compiled by the Ministry of
Health, Planning and Development Division. This comprehensive document could be
‘as a sound boss for health facility planning. Nevertheless, considering the number
‘of guidelines ond policies, which were produced over past years. it is understandably
challenging to include everything in one single publication. Therefore, this sees of
planning guidelines for the Malaysia Pians wil have to be complemented with other
élevant guidelines / policies that have not been included in the publication.
yore large, itis found that the MoH has compiled relevant guidelines / policies over the
ars. Evidenced by files / documents belonging to individuals these have been
circulated out of their own initiative. instead of being held as ready-to-use pooled
resources. The guidelines / policies issued have not been systematically documented
‘and filed; as a result, they are difficult to access and refer to, especially for new comers
joining the MoH Planning and Development Division or JKR, Some guidelines / policies
documents in the files are found to be incomplete and scattered; some are without date
source of document. In addition, there is no categorization of the guidelines / policies,
jaking references even more difficult.
consultant has tabulated and broadly categorized all the documents provided to
‘ehable quick searching/ browsing of them. The documents are categorized into:
Design & Engineering,
a Equipment & Vehicle,
Q Operations; and
Other policies.
pal Repo!
MediconsuleThe documentation [please refer to Annexes | ~ 4) are compiled based on these
cdlegories and if a policy covers more than one category the policy will appear in all
int categories.
‘The compilation of the documents should assist the MoH in developing a standard policy
‘a methodology of establishing procedures and fools to have one updated policy
ar
document for the various health faciities.
Roper
‘MediconsuleREVIEW OF DESIGN & BUILDING STANDARDS
FOR HOSPITALS
is section is to propose a number of acceptable base standards for the planning of
Health Core Facilties in Malaysia. It is intended that this section will eventually be
expanded and will form part of a comprehensive Malaysian Health Facilities Guidelines
documeni(s}. which the MoH Malaysia intends to develop.
process of planning of Health Care Facities can be separated into 6 distinct stages
and defined as follows;
1 - Services Planning
is the stage at which long term strategies for the delivery of services at local, regional
\d national level are developed.
‘Stage 2 - Functional Planning
This is the stage at which the health services to be provided by an individual facility are
defined for a given population.
stage 3 Development Control Planning
js the stage at which the program for the future development of the individual facility
js| provided. The program provides an overall plan to control the future physical
opment of the faciiy including viable stages of work, time scales ond costs.
Project Planning
This fs the stage at which the agreed stages of work for the individual health faciity are
ned in detail. The various phases begin with development of the Design Brief and
joceed from Block and Schematic Planning through to Construction Documents.
ge 5 - Contract, Construction and Commissioning
The 3 phases of Stage 5k the period at which an agreed tender or price is accepted for
oh agreed scope of works in an agreed time. The on site building operations and
weer ‘of the facility is completed, made ready for occupancy and handed over to
client.
Stage 6 - Evaivation
THs ‘s the stage at which the compieted facility is evaluated after a term of occupancy.
Tess guidelines ore intended for use in the Project Planning stage of Health Care Faciity
development. It assumes: that the preceding stages have been completed.
number of Malaysian Hospitals recently constructed or currently being constructed or
planned were reviewed. Overseas Guidelines such as the NSW Heatth Facility Guidelines
=| ier 2005; Queensiand Health, Planning and Design Guidelines, August 1998 and
fed publications from the NHS Estates/UK were used to benchmark the Malaysianbut excluding the following:
fire stairs or fre lobbies
| 2. passing riser shafts
| ifs, ft shafts and lift tobbies
Normally the services cupboards or services ducts within the GDA colculation is not
Inplodedt however for simplicity we have included them and in proposing the circulation
factor have made allowance for their inclusion.
ha Engineering
is the sum of the areas of all engineering services plant rooms including service
‘edpboards; ft motor rooms and service/tiser shats,
3.1.5 Travel
This 5 the area that represents the linking of the vorious departments In the hospital
‘outside of the departments. It is for the circulation of personnel and goods both
horizontally and vertically. It includes all inter department corridors, fre stairs. fire lobbies,
lift shafts and fift lobbies. Fire stairs: lift shatts and lift lobbies are included once for each
tevel on which they occur.
\
3.1.6 Gross building area (BGA)
This is the sum of the gross department, engineering and travel areas. This BGA does not
include for unenclosed covered space but does include for enclosed or unenclosed
covered wolkways that join detached buildings In the hospital complex.
itis noted that all unenclosed covered space is included for costing purposes within the
jantity Surveyors calculations.
3.1.7 Building efficiency
This is the ratio of the sum of the nett room areas (NRA) fo the gross building orea (BGA)
expressed as a percentage Le, NRA/BGA x 100= % efficiency.
t Circulation Factors
1 Department circulation factors
There ore many items that contribute to building costs and significant among them is the
site of the buliding. The major factors affecting building size, room area and planning
efficiency, are critica! elements that require fo be controled and monitored during the
planning and building process. By establishing acceptable standards and guidelines
feng typical rooms and departments, the SoA generated from the Medical Brief
becomes an important tool in monitoring and delivering projects on budget.
ial Raper —
MediconsulrDéparmont and Building circulation factors are adopted ot the Project Plonning stage.
The department Circulation Factor is an adopted percentage for each department that
's applied on ond added to the NDA of a deporiment to anive at a GDA for the
department.
De nts in c hospital are generically different and as such c different circulation
factoris applied to each deportment.
te have compared a number of Malaysian hospitals and researched overseas
guidelines to artve at the following proposal for Department Circulation Factors covering
[ist of typical departments occurring in Malaysian hospitals. Please refer to Annex 5 for
a Summary schedule of areas of 6 Malaysian Hospitals on a depariment-by-department
basis.
fe are a number of anomalies evident in the schedule which would requite additional
research to address. However by reviewing each department and discarding
‘wayward’ results we have been able to propose the following schedule of norms.
‘As con be seen in Table 1, the factors proposed are generally larger than the Australian
guidelines. This can be explained as follows;
10. the use of wider conidors in Malaysia due in part to the greater number of visitors,
10. the inclusion of service ducts and cupboards in the proposed circulation factors,
a the practice in Malaysic of locating the AHU room within the department and
thus increasing conidor area.
Q. differences in department conteni/size,
@. differences in work practices.
differences in nett area definition.
vd 1 Circulation Factors ~ proposed Norms
MOH Proposed = NSW HFG
Departments %
Circulation %
‘Accident & Emergency
Day Core Unit
Haemodiaiysis
Outpatient Pharmacy
Specialist Clinics
Bums Unit
€ardiac Core
Ihpatient Ward
High Dependency
Intensive Core
NICU
Ny
RESBS
ssehacsses
Bstee
Fro!
« -|
|
imaging a 35
Labour & Delivery 40-45, 35
Mortuary & Forensic 38 20
Operating Theatre M45, 35-40
Pathology 35 5
Ra ncology 88 90,
Cai 30 25
¢ssD 30 20
Hospital Medical Stores 25 NA
30 NA
0 NA
10 NA
32 25
_lppatientPhamacy 32. 25
Engineering & Mainfenance 25 15
Cleaning & Housekeeping 10 10
Linen & Laundry 10 10
Administration 30 20
Specialist Office 30 NA
‘On Call Unit 30 10
Cafeteria 25 NA
Education & Training 2” 18
For Radiation Oncology the nett room crea of ‘bunker’ areas for treatment rooms for the
Tinear accelerators and brachytherapy etc. are token as including the ‘bunker’ walls and
the maze.
sulation factors for a particular department wilt vary from facility to factity depending
‘on a number of factors, specific to the facility being planned such as;
| a brief requirements, Le. whether the OF suite is briefed with a single condor o with
sterile and ‘diy’ conidors:
a the plan shape that may be due to site or building restrictions where elongated
or ‘complicated shapes’ may increase the length of corridors: or
a the plan forms, ie. in a ward with a ‘racetrack’ corridor rather than a single
conidey, alll these, including the skil of the architect, will contribute to variance
from the circulation factor nom.
Itis important not to over or under provide for deparment circulation. To under provide
will put unnecessary pressure on the planner which may result in dysfunctional planning
and to over provide wil result in waste. The factors are guidelines and are a tool, for alt
involved in the process, for planning ond monitoring the development and should not be
sden as unchangeable as situations do vary from project to project.
1e appropriateness or otherwise of the circulation factors will be tested in the schematic
ign stage of planning during which necessary adjustments require to be monitored as
‘will affect costing and budget.
et Rape _
‘Mediconsulr uty 2066 @ Pog 83.2.2. Building circulation factors
Building circulation factors ore composed of travel and engineering and are the
percentage applied to the GDA and added to it to arrive at c Gross Building Area.
Travel is comprised of:
@ the horizontal interdepartmental comidors
10. the lifts, ft lobbies and stoirs
0 fire stairs and fire lobbies
The percentage of travel wil vary from project to project. Generally smaller lowsise
hgsptcs wil have a lower percentage of travel than high-tise as the lift and fire stoir
jrements increase with building height although, and depending on plan concept,
the percentage of interdepartmental conidors may increase. In larger hospitals the
percentage of space for lifts, lift lobbies, stairs, fire stairs and fire lobbies will be in the
order of 8% fo 10% of GDA.
‘The percentage of Engineering wil generally be in the order of 12% to 15% of GDA.
We propose ¢ Buliding Circulation factor in the range of 30% to 35%, depending on the
complexity and size of the hospital, to be applied to the GDA to arive at the proposed
BGA of the hospital.
3.3. Corridors
In comparison, the space in a hospital given over to circulation is generally greater in
Malaysia than in Australia or the UK. 'Cortidors in Molaysia are generally wider, likely due
in part because of the greater number of visitors. The following table compares the NSW,
HFG guidelines and the present guidelines contained in the MoH Project Pre Bid
Document Brief.
The implications of wider corridors, as well as larger rooms, are quite significant with
regards to project costs. An additional 300mm added to the width of a 2100mm wide:
corridor adds 14.3% to the area of that corridor and, in so doing, increases the circulation
factor of a department. Thus a department with a 1.35 circulation factor increases to a
circulation factor of 1.40. This results in an overall increase in building area of 3.7% and
‘thus gives rise to a significant increase in project cost,
A further analysis with on site evidence based assessment of comidor hierarchy and
corridor widths is, we believe, warranted.
3.3.1 Corridor width guidelines
The minimum requirements for Health Care Facility comidors are summorized in the
following table:
Fred ep
KK Mediconsule
‘mite @ Boge 20Table 2: Conidor Width
location
Operating.
Emergency, Birthing,
ru
inpatient
‘edical Imaging,
ibulatory Care
‘Ambulatory Care /
Outpatients
Qutpatients/
Community Healthy
Consulting Rooms
Offices
Amenities
Inte-Departmental
Contcors
Hotel Services e.g.
itchen, Laundry,
stores
Hotel Services e.g.
Kitchen, Laundry,
Stores
3.4 Room Sizes
Trolley
Movement
Patients —
Freq/
regular
Pationts —
Frea/
regular
Patients-
Occas/
Regular
Patients-
Rarely/
Never
Patients —
Never
None
None
Services
Patients
Services
None
Min Cleat pee Clear
2100
2100
1800
1800
1200
1200
1200
1800
1200
2200
2100
1800
1200
1200
1200
2100
1500
Notes
Consider door widths
into adj mms, wider
conidoss at entry pts for
fuming trolleys/ beds
Consider door widths
into adj ms, wider
contidors at entry pis for
fuming troleys/ beds
Door widths to ensure
movt of troleys / beds
from corridors to adj
roomsis not restricted
Part of Acute Care
fociity
Separated in
accordance with BCA
req'ts from acute
facility, or stand-alone.
Coridor length to be
less than 12m
Corridor length to be
fess than 12m
but depends upon
traffic generated
Major e.g. connecting
+o other Units, large
traffic flow.
Minor = within unit
Malaysia
2400
1500
1500
Seneraly room sizes do not affect circulation but the do have a significant affect on the
jiding area. Room sizes are an outcome of room functionality and a comparison of
room sizes overseas and in Malaysia show up a significant difference with, in general, the
sie of rooms in Malaysian hospitals being larger. The following is a comparison of some
randomly selected rooms in a few Malaysian hospitals just completed, compared to the
NSW HFG recommended room sizes.
vil Hope
Mediconsule
Poge #13.4.1 Room size comparison
(Room NSW HEG
Patient creas
| Consulting Examination Room. 12 16-29
Procedure Room 20. 18:36
Trealment Room 14 18-23
‘Operating room — gen.. Urology, Gynee, a2, AAAB
Opthal, Plastic, etc.
‘Operating Room, large - Neuro, Ortho, 5 S455
Cardiac.
| Operating Room -minor surgical, 3 3%
indoscopic procedures under local, gen.
inaesthetic
Patient Bay — Resuscifation 25 | 15-23
Patient Bay ~Crfical 20 144)
| Patient Bay — acute treatment 10-12 10
Patient Bay- non-acute treaiment 10 72
Patient Bay — Recovery z 324
Patient Bay Holding 9 624
(CU Isolation Roorn 25 19-28
ICU Bay ~criticol 24 16-22
ICU Bay —high dependency 20 1415
NICU infensive care bay 147 809.2;
NICU high dependency. 127 $98
NICU low dependency 10. 60-94
ED Birthing Room 28 27
Renal Dialysis bay - chair trolley. 9 50-94
Renal Dialysis - Isolation room, 12 1422
1 Bedded room 15 16-22
‘Thedded room isolation 15 16-22
bedded room, 25 2031
{4 Bedded Room a2 45-52,
‘Ante-room to Isolation Room 6 2
En-suite bathroom 1-2 beds 5 42-6
Ensuite Sathroom. shared 46 beds 6 1416)
Disabled toilet 5: 6
Tolle. public 4 a
Toilet - Patient 4 5
[Anaesthetic induction, 15; 1216}
FEubicle change 2 15-2!
Cubicle change - disable 4 35)
Parenting room/ baby change cnd feed. é 10-16
Patient bay 9 72
Plaster room 14 16-26
Blay area 20 30-60,
‘interview /counseiing ~6 persons Wi Wig?
Frol Rapert
& Mediconsuteoor, NSW HEG
{Support Areas
‘Glean Ufiity 13 Wa14
Dirty urity #12 915
Assisted Bath 15 12:18
Linen Bay. 2 153
‘Store - Equioment 1420 10-22
‘Store - General 9-10 1214
[Store = Files, 10 12}
‘Store = Stationary. 10 | WW
‘Store — Sterile Supplies i 12 12-24
[Cleaner room’ Ss 25.
Disposal room & 56
Staff Areas i ! i
‘Meefing room (4 person) z B14
‘Meeting room (6 person} 12 T0415
‘Meeting room (12 pecon) 15 18
Meeting room (16 person} 20 28
Meeting room (20 person) 30 35
Office (2 person} 12 14
Office (3 person) 18 18
Office (4 person] 20 24
| Doctor office i 12} 12:18 |
[Office - Sister/ Medical Assistant 2 10-12
Reception/clerical 16 16
Staff Station 1-2 persons E10, 1220
Staff Station 3 persons 14 15-26
‘Staff Room 8 persons 15 17-22
Stoff station 14 7-20
Staff rest 15 16-27
{Scrub up/gowning 10 815}
T tcspios recsuted are Sungai BAR, Abr Seta Serdang, Pondan and Sungal Petar
Itis recognized that the schedule is not comprehensive and the rooms selected may not
be representative of all room sizes. However it does indicate an apparent significant
difference ond the Implications as shown below do point up an issue that requies
addressing.
‘Taking the averages of the room sizes shown in the schedule indicates that the Malaysian
spitat rooms are on average 13.5% larger. This would mean if translated throughout
ie department that the department NDA would be 13.5% greater than recommended
the NSW HFG.
Thus a NSW HFG department of, for example, 1000sm NDA would with Malaysian sized
ms be 1,350m? NDA. By applying average deparlment and duilding circulation
ictors to these figures we see that this would result in the hospital in Malaysia being 35%
ldrger in size than the one built fo the NSW HFG.
ral Report
MediconsuleIt is not realistic to apply this percentoge saving to all rooms/spaces throughout the
hospital but by including @ review of corridor widths and room areas it would not be
unrealistic to seek a 15% to 20% reduction in area.
1e cost implications of room ses and coridor widths are significant. By way of
tion the Pandan hospital has a BGA of 108,750m2. A 15% area reduction would
realize a saving of 16313m? ond at an average cost of RM3.700/m? equates to a
"monetary saving of RME0:000000.
There are reasons due fo service defivery, MoH policy and culture that resutt in room size
variances, however the differences noted above and implications of cost indicate a
for the issue fo be analysed and reviewed further.
suggested previously regards corridor widths, we believe further anclysis is required
ds room size guidelines.
3.4.2. Generic room list for hospital of 500 beds and over
‘The Department-by-Department Schedule of Areas (SOA), please refer to Annex 6 is the
beginnings of what wil uiimately be a dynamic tool for the MoH fo use during project
development.
A set of facility standards wil enable the MOH to generate project budgets and
development briefs within a controlled framework. By developing guidelines and
ultimately a process framework will also assist the MoH to monitor projects as they
proceed through the development process,
|
fi
ua Repor
QK Mediconsule -4. DEVELOPMENT OF BUDGET ESTIMATION
| METHODOLOGY
‘This section shall analyse current methods for creating projact budgets. review and
provide recommendations of the budget estimate methodology. _ It will focus on the
initial budget preparction as projects are initially defined within Planning and
Development Division of the Ministry of Health and before preparation of the full Project
Brief.
4|1 Development Planning Process
Before ciscussing further it would help us fo understand better the process of planning in
Malaysa and the key players in the Implementation of development projects os well as
their roles ond functions.
National development planning is sustained by the Central Govemment in order to
create and maintain conditions that will accelerate economic growth and social
development in the country. Development planning comes under the purview of the
Inter-Agencies Planning Groups (APGs}. The Economic Planning Unit (EPU) is the
secretariat for each of the IAPGs whose work precedes the formulation of ony
development plan. Planning is a two-way interactive process between the EPU, on the
‘one hand, and the ministies ond agencies, on the other. Central government
determines the setting for macroJevel parameters, while the ministries and agencies
translate the national development thrusts into programmes and projects.
The 1oles of each party involved in the implementation of development projects is briefly
‘explained below:
Economic Planning Unit (EPU) — evaluates socicl impact of development projects
and approves macro project scope as well as budget estimate application by
client ministries.
2 Treasury, Ministry of Finance - makes available funds based on approved project
| scope by EPU.
1 Public Works Department (JKR) - implements projects through any procurement
method appropriate.
|. Clent Ministies — plan programmes and projects based upon needs of the
country.
Project Management Consultants (PMC) - extemal consultants appointed by the
client ministries to implement projects on thei behalf.
sey 2006 44.2 Process For Obtaining Development Budget Approval
From Ceniral Agencies — EPU, Treasury
MoH submits project feasibilty justifications for development projects, site, project
scope and cost estimates to EPU.
‘Sometimes proposes budget allocation for the RMK period
’
EPU evaluates justifications and considers population needs of catchment area.
Does not scrutinize scope in detail, rather studies social impact of project to the
community and economy
,
| EPU then approves project and budget allocation.
Sets ceiling costs based upon MoH recommendations.
t
informs Treasury
‘
Treasury provides funds
4.3 Current Methods for Creating Project Budget by MoH
1
From discussion with MoH. the methods for creating project budget are a litle unclear,
The process is explained as below:
H
2. Project budget allocation is set for individual projects by MoH. The budget cost is
derived from several modus operandi
* For projects using the standard plans (as designed by JKR). the cost estimate
's prepared by JKR based upon preliminary design, floor area and finishes.
‘+ For projects of non-standard design, the budget is estimated using historical
data for projects of similar nature, scope and size implemented in the past.
The tule of thumb is the cost per bed, which is RM1.0 mil per bed. The
: estimate is taken as it s without considerations for inflationary costs, current
‘material prices and tabour costs and construction conditions,
Frool Report
Ql Mediconsult Jy 208‘4.4 Reviewing Current Process For Preparing Projects/
Programmes For Implementation In RMK 9
banng for RMK 9 projects would be done a year before the launching of RMK 9, ie. in
2005. A conference workshop involving all state health directors, all heads of divisions,
Program directors and all hospital directors, Representatives from the Central agencies,
'U, Treasury. aNd JKR are invited os observers. MoH would review its health services and
forth its mission and vision. It would debate the strategies to be developed for the 5
to come. The workshop would discuss issues such as health services needs, delivery
ystem, health costs, manpower requirements. medical technology and infrastructural
ities. Planning strategies would have been established as fo the thrust of the RMK 9
it whether to develop more new facilies or to upgrade existing ones for
’xample. At this conference no projects are identified yet.
Following the workshop, the State Health Directors and programme directors would work
identifying specific programs and projects. They would prepare feasbillies papers fo
sty the projects and propose a budget. The list of projects would be submitted to MoH
fo be prioritized. Mol would then finalized the list of priority projecis and based on this list
repare the budget allocation required. The Planning Unit of the MoH would decide on
ject scope and the Development Unit (of MoH) would prepare a budgetary cost
@stimates. The finalized list of projects will be submitted to EPU for approval,
The following chart indicates how project implementation procedures /.e. how Ministry of
Health's projects are implemented:
4.4.1 Flowchart of project implementation process
texk/actvey Action by
‘ro Health planning
Service review to establish
‘Mission, vision and Strategic planning & Tarrepebianning BY (MOH
programme planning for health for P
ext 5-year
,
Project identification
Feasibility Studies '
+ Health Situational Analysis in each Posen breces
State/tegion on
+ list of projects with budget estimate
: ‘
inal Report
Mediconsule‘Submit to MoH Planning and Development Division will
For prioritization of programs/projects ‘also prepare their budget estimate for
: centrally planned projects
Submit to EPU for approval
+ feasibilty study/ustification
+ scope/Brief Planning and Development Division
+ budget estimate based upon
* norms or historical data
‘
EPU approves programs/projects EPU Social Sector
Informs Treasury and MoH
Treasury approves funds for RMK Treasury
‘
Mol receives funds for 5-year plan period
through annual atfocettion Planning and Development Division
(oH submits project Briefs to JKR UR
implementation,
‘
IKR implements through various
rement methods Le. turnkey, design JKR
‘and build, in-house feam,etc
4.4.2 Current methodology of budget estimation
The issue with which this study is concemed about is the budget estimate that is provided
fo EPU. If it is underestimated, it will cause problems io the implementation of these
jects.
Current method for producing a cost estimate is done using historical data of past
rejects. For example, for a health clinic for a population of 100,000, a Type 3 Clinic
Foal Report ——
1 Mediconsule _ uly 2008 4 Paproposed to EPU for approval is insufficient. If goes to illustrate that the cost per bed
nom is not a reliable methodology for budgetary estimation.
4.44 Process of controlling costs during planning and design stage
With such a procedure of project approval, there should be a process of controling costs
‘during plonning and design stage of the project. But the current system does not make
Provision for projects to be designed to set budget. Contractors/consuttants are seldom
\informed of the budget when assigned the job. They will be given the project
Briet/scope to work on. Cost estimates are done after the design 's completed basing
\upon the detailed scope provided by the MoH. very often the design is found fo have
lexceeded the budget approved by EPU. When this happens, MoH would begin an
‘exercise fo reduce the scope of the project. The designers would have to redesign. The
ituation has been going on for decades. The amount of abortive work in project
implementation is significant. Due to changes needed to be made to the scope, many
Projects are unable fo be implemented in time and therefore have to be postponed to
the next Malaysia Pion.
|
4.5 Shortcomings in System of Project Implementation
From the current situations os discussed above, several shortcomings have been
identified:
The scope of project. very so offen, does not match up with the budget set
because detailed scope is only done after the budget approval is obtained from
EPUL
1] The rule of thumb method of RM 1.0 million per bed cost does not provide o true
| reflection of the cost of the project as two hospitals of similar size in terms of beds,
for example, may differ in content and the sophistication of medicol
technologies required.
The current system of producing a budget estimate for MoH projects lacks an
‘evidence-based approach. The methodology employed leads to inaccuracy in
' budget allocation, As a result, project implementation gets delayed and there
‘always be significant abortive work, which leads to a wasteful of funds.
There appears to be a lack of coordination between establishing the scope of
the project and the preparation of project budget estimates within MoH.
@ There is a lack of knowledge on project implementation especially on the
technical ond contractual implication if the process is not clearly understood.
inal Repos!
Mediconsule
if ES @ PageThis could be due to the absence of building professionals involved in the
budgetary process at MoH level as well as at the EPU level.
.6 Recommendations
ject budgeting is on essential component of effective project implementation
rocess. Insufficient budget from the beginning of a project means either the estimation
k inaccurate or the scope is over provided. Therefore it is crucial that the budget
imate to be approved by the EPU matches the scope of the proposed project, as ihe
IPproved budget wil form the basis for preparation of the design.
Fa long time the methods used by MoH in preparing a budget estimate is based upon
istorical data of past projects. Using historical data is sill acceptable provided data
jollection is systematically done and analysed. As projecis hove become more
ompiex and sophisticated, an objective approach to budget estimation needs to be
employed.
we ‘are proposing a budget estimation methodology using floor area. In section 3 on
Reviewing of Design and Building Standards for Malaysian Hospitals, we have provided
generic room lst and areas as well as grossing factors, which ore fo be used as fools in
generating floor areas for specific projects. Following the process for project
Implementation as indicated in 5.1 above, a step-by-step process is given below;
Recommendation 1
From Strategic planning {from workshop)
Undertake Situational analysis studies
Establish needs
Identifies development projects
Establish feasibility and scope (service profile and functional content) of project
Based upon functional contents of hospital, establish components of every
department
Establish schedule of rooms and room areas
Establish net floor areas
Apply grossing factors and calculate gross deparimental areas of hospital
Apply cost per square metre (from JKR manual) or any other cost data available
Add % cost of speciaiist works, ie. Mechanical and Electrical
% cost for extemal works
% cost of equipment and fumiture,
% cost of preliminaries,
a
a
a
a
a
Qo
coooo
rel Ropott
@ Mediconsule Duly 6 # Page 71+ %cost of tumkey element (from EPU Standard and Cost) for tumkey/design
‘end build projects}
% contingency sum
provisional sums if any
‘Add cost of land,
a Apply voriation of prices (current materials, equipment and labour rates) from
Department Statistics Variation of Prices Index, or CIDB Cost information index, or
IKR variation of prices index.
2 Arive at total estimated budget of project.
4.2 Recommendation 2
Another methodology that can be developed to arrive af an early project budget is to
develop departmental area norms based on major room component of the
department. The major room component in the OT sulle is the number of operating
rooms and in the Imaging department the number of Imaging procedural rooms.
By developing such norms a department area schedule and a hospital gross building
‘area can be calculated based on the Needs Statement from which a budget cost can
Be developed.
However, it is not within the scope of this study to develop component area norms but
‘would requie to be part of a subsequent study, the need of which will be discussed with
the MoH.
6.3 Recommendation 3
jOH has already developed generic project Briefs for 36 bedded hospital, 76 bed, 108
1d, 212 bed, 495 bed and 500 bed and over. These Briefs, which have detailed out the
functional contents of each type of hospitals can be costed to form the basis for
budgeting purposes by establishing the floor area norm for each component of the
hospital. Apply the cost per square metre and the VOP as mentioned in
Recommendation 1 above, to amive at the estimated cost. the generic costs would
have to be updated regularly to take account of current market condition,
416.4 Recommendation 4
Ii order to produce a credible budget estimate, MoH may requite the services of cost
consultants. This could be done by engaging Quantity Surveyor Consultants to prepare
budget estimate. MoH could also use the services of JKR. Altematively MoH could
19 in several technical professionals to work in its organization for the task,
CK Mediconsule July 2056 # Page4.6.5 Recommendation 5
Diuting the investigation into the issues of deriving at budgetary costs itis found that the
‘agencies involved in health project implementation lacks the knowledge in developing
i project budget. The JKR, as the implementing agency, provides cost estimates based
upon the scope given by the cfient ministries, But this is done after the project budget has
been approved. In other words, the JKR is not being involved in the preparation of
ject budgetary costs. Nevertheless, JKR does not favour the method of costing using
functional norm such as the cost per bed as this method does not reflect the actual
vel of technology provisions for the project. it much prefers the approach of estimating
using the cost per square metre of floor areas.
EPU, being the centrat agency that grants approval to development projects should
st the methodology for deriving at budgetary costs not only for Ministry of Health
projects but for all Ministries, so that there is consistency in budget preparation for the
five-year plon period. As at present, the EPU has left it to the various Ministries to use their
‘own devises in developing a budget cost estimates.
‘We therefore would like to propose that the EPU adopts this methodology of deriving at
budgetary costs for all development projects by all Ministries.
inal Report
l ‘MediconsuleReference
1 Building Plans of recently completed and under construction hospital projects in
Malaysia:
+ Ministry of Health Molaysia, Bullding Plans of Sungai Buluh Hospttal, 2006.
Ministry of Health Malaysia, Building Plans of Pandan Hospital, 2004.
Ministry of Health Malaysia, Building Plans of Temertoh Hospital, 2005.
Ministry of Health Malaysia, Building Plans of Ampang Hospital, 2005.
Ministry of Health Malaysia, Building Plans of Jempot Hospital, 2004.
‘ Ministry of Health, Project Pre Bid Document Brief, September 2004
3, Jaboton Kerja Raya Malaysia [PWD Molaysic), Kepertuan Teknika! Senibino
(Architectural Technical Requirements) The National Children’s and Women’s
Hospital, 20 September 2004
Minisiry of Defence Malaysia, Building Plans of Ammed Forces Hospital, 2007.
4, Queensiand Health, Planning and Design Guidelines, August 1998
5. NSW HEALTH, NSW Health Facility Guidelines Revision v3.0. December 05.
6 Department of Health and the Welsh Office, Health Bullding Notes, HMSO Books, 1989
7. Ministry of Health, Planning and Development Division, 2005-06
8 Economic Planning Unit, Prime Minister's Department, 2006
9. Treasury, Ministry of Finance Malaysia, 2006
1
10. Department of Statistics Malaysia, Cost Information Index
|
1]. Jabatan Kerja Raya, Kos Purata Semeier Persegi Kerja-Kerja Pembinaan Bangunan
(Cost Per Square Metre for Building Construction Works), January 2005 fil June 2005,
JKR 2080-01 36-05, Jiid 47, No. 12, 2005
12. JKR, Contract and Quantity Surveying Branch, Panduan Kos Bincon JKR
| Cost Guidelines) ecition 2001, Preparation of Preliminary Cost Estimates, JKR 20800-
0119-2001
13. Construction Industry Development Board {CIDB}, Building Elemental Cost Analysis
‘Manual, Construction Industry Resource Centre, 2005
cknowledgement
1@ Consultants are grateful of the support and assistance given by the Moll - Plonning
d ig Devecbrent Division, JKR, EPU and Treasury, Minisity of Finance during the
fret Repes!
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7 [ePORAL ROM HOLDING CLRCAL No 7
| _ lceNERALWASTE
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I
[AL DEPARTMENTAL WET AREA ae
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TAL DEPARTMENTAL GROSS AREA | "009,
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20 TORETS 2 al |e FOR wHELCHA
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32 foTarr Hance MALE |owouai LOCKERS 3} 718 nN. We SHOWER:
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‘34 JBISPOBAL ROOM fscraRaTE BAGS FOR ay ata
[TOTAL SHARED NET AREA,
JcIRCULATION AREA 3534
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aL
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16 [parvum IASANG AND DISMFECTON ype
lor uriva BEDPANS;
ASHER SANTISER
76 ose earanr s[ as
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19 [peneRAL STORE [se] te
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26_ pow RUESTHETT ORE i | 2 fours
27 fpNaESTHETSTS OFrice |FeRScnaL ASST AREA, || se ronacunisrarve
CLERKS & OPENOFFICE FOR }ro Be Locare> curate unr
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7 stenorrice FACLIES FOR PAWATE fae
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20 _|Sexma ROOM [ron 0 Penson 3] 30 paces Prom oursiGe
31 _JoNeatl ROOM 212] 96 JAMTACHED WC SHOWER
sa [btarrrest eae RES af aah ae
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3 aFTOLES ear adver
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[foTa: DEPARTMENTAL GROSS AREA 02_[INPATIENT SERVICES.
Tew ‘SPACEROOM ‘WORKLOAD TEGUIPMENT | ROOF | UNTT”| TOTAL ‘COMMENTS
No, oo | ance | area
2A
‘A [ENTRANCE AREA
7. [ETRaNce Losey ARLOGK, [FORD BED eTRETOHERS ys
2 fpeLaTMES warns [FOR 10 PERSONS. 1p) 12 foursme mew
3 _lsTacss ReLaTves INTERVIEW fs
ry ING AREA,
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4 BNGLE CUBICLES TH SEMI GLASSED WALLS [ 20
NOBOOR
= TSTORAGE AREA
[TREATMENT ROOM [RUECTIONS, PREPARATION OF 7 6
SETS FOR PROCEDURES
5 euTey [STORAGE OF UEDICINE, DRUGS yee
[TREATMENT TROLLEYS,
larravenous
lneusionPAcks
7 [pervoniy |ASHING AND DSNFEGTON yee
jor uriwaL acoPans;
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TABLE K MACHINE
2 PaneNTTOLET IMANOICAPPED ACCESSIBLE 7 [ASSISTED We / SHOWER,
70 paver [PREPARATION OF BEVERNGES ye
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T fiROULEV Pare [TROUY, STRETGHER AND 7 4 .
Swneerciue paRKiNs
12_lpenena s10Re a] ala
73 [EoUPMeNT STORE, a] af sa
4 STORE a] 9030
15 fing stone a] 3f 3
16 [PLEANERS ROOM 4 5
‘17 Jprss0sAL ROOM a] of © {ecu Be accesaiLEFROW
loursve
D_ [starr FACITIES
7a STAFF ChaNGE SCESSISLE FORM OUTSIDE, wy 2 war mec Toonens,
INcAR TO THe ENTRANCE lsrowers we
7a pociors ormce 7 %
‘2 _|BSTERS OFFICE 1 €
21__[Sewnaliacow’ [FORZO PERSONS a 2
722 [PNGALL ROOK 1 8 [ATIAGHED WE SHOWER,
23_[BIAFF REST TH PANTRY FACTS 4 ©
‘24 _[praver Ron 2 a {wa wel ASTON
25 TOLETS sib Tee UT 2 6 (war
[TOTAL DEPARTMENTAL WET AREA oo
REUATION AREA 35% 184
[AL DEPARTMENTAL GROSS AREA 9,INPATIENT SERVICES:
[REL WisroRs CHANGE
jeer
/ATION
JOPEN BAY FOR 2 INCUBATORS,
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loamy WTH RADIANT HEATER,
[EWING CALERY
[NURSING AREA
[5a STAFF OBSERCATION
JFoRTENSWE AND
loBSERVATION AREAS
[rcOTEAH
INCL. LOBBY /ARLOGK
fo weveaToRs SPACE wT
1 staRF 2 MoNTORNG
loevice, ero; wuRSE
louastavion wire woR«ToP;
lanay RESUSCITATION
)PMENT, m2 COT
INCUBATIORS WCIROUMLAR
looncert
fe ncusarons; easy BATH
wine RANT HESTER
FROouin- vt MOTHER:
[WTATTAGHEDTOLET, 1
JSHOWER,# swe, 1 sauAT
Jwcarwasnensen
EXCHANGE TRANSFUSION
LLBE PREPARED ANDLAY OUT
TROLLEYS; REFRIGRATOR
FREEZER FOR STORAGE
VACCINE AND DAUGS
IGE FACILTES; STORAGE
RECYLED CSSD TENS
[COLLECTION
lMoBice XRAY BAY
pee ASOT
{GAS ANALYSIS TABLE
FACLTIV AND LA SNS,
INGUBATOR CLEANING 7
‘CLEANING,
TAMINATION, ORYING,
gNOR MAINTENANCE AND
[TESTING OF INCUBATORS
ING, TESTING AND
INTENANCE OF VENTILATORS
[STORAGE OF MLK SUPPLIES
ano warns FACILITIESINPATIENT SERVICES:
-AEEROOM
[ENTRANCE AREA.
WORKLOAD EQUPWENT
TOTAL
COMMENTS:
[ENTRANCE LOBaY.
[ASSESSMENT AREA
|ASSESGUENT OF NEWEY
laRRavED PATENTS ANO BATH
[RELATIVES WARTIN
[FOR 10 PERSONS.
[visitor TOLET’
@
JNORSE Base
TWiT CRETRAL MONTORS &
[pocToRs weetnG AREA.
a]
72
“a
2
|
lorspoca, Row
[otar CHANGE
[wae ner LOCKERS,
loocrors oF AcE:
[sisrers OFFICE
fsewvaR ROOM
IFOR Ta PERSONS
fon.caLL ROOM
[aracheD we /enower
[Sta REST,
To PANTRY FACULTIES
[pRavER ROOH
[nar mck. ALTON,
2.
7
6
8
2
2
2
a
2
[stare TOLET.
"TOTAL DEPARTWENTALNET AREA
[GIRGWLATION AREA 35%
TOTAL DEPARTMENTAL GROSS AREA.
Ey
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