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The Project Control Framework Handbook v2 April 2013

Highways England Project Control Framework

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0% found this document useful (0 votes)

343 views58 pages

The Project Control Framework Handbook v2 April 2013

Highways England Project Control Framework

Uploaded by

Angie Dunn

We take content rights seriously. If you suspect this is your content, claim it here.

Available Formats

Download as PDF, TXT or read online on Scribd

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Safe roads, reliable journeys, informed travellers

The project control framework

Handbook
v2 April 2013

An executive agency of the Department for Transport

THE PROJECT CONTROL FRAMEWORK HANDBOOK – V 2 – APRIL 2013 2

Acronyms ASC Asset support contractor

BICC Board investment and commercial sub-committee
and DfT Department for Transport

abbreviations ECI
HA
Early contractor involvement
Highways Agency
HIB Highways investment board
HPB Highways programme board
IA Investment authorisation
The Department for Transport’s investment
IAF
appraisal framework
ICF The Highways Agency’s investment control framework
MAC Managing agent contractor
MM Managed motorways
MM-ALR Managed motorways - all lanes running
MP Major Projects (directorate)
NDD Network Delivery and Development (directorate)
NetServ Network Services (directorate)
NSIP Nationally significant infrastructure project
PCF Project control framework
PICG Project investment control group
RCC Regional control centre
RPA Risk potential assessment
RTMC Regional technology maintenance contractor
SGAR Stage gate assessment review
SHARE The Highways Agency’s document management system
SofS Secretary of State (for transport)
SRO Senior responsible owner
TechMAC Technology managing agent contractor
TM Traffic Management (directorate)
<< <<

Contents Acronyms & About this About the project Major road The Major Projects Products and Tips for the consistent & How stages Project assurance Roles & Project handover Annex A - project
abbreviations handbook control framework projects lifecycle product matrices effective application of the PCF are managed & governance responsibilities and closeout control processes
THE PROJECT CONTROL FRAMEWORK HANDBOOK – V 2 – APRIL 2013 3

Contents Acronyms and abbreviations 2

About this handbook 4

About the project control framework 5-6

Major road projects 7

The Major Projects lifecycle 8 - 13

Products and product matrices 14 - 18

Tips for the consistent and effective application of the PCF 19 - 22

How stages are managed 23

Project assurance and governance 24 - 39

Roles and responsibilities 40 - 43

Project handover and closeout 44 - 48

Annex A – project control processes 49 - 57

<< <<
THE PROJECT CONTROL FRAMEWORK HANDBOOK – V 2 – APRIL 2013 4

About this On 1st April 2008 we launched the project control

framework in our Major Projects directorate. The

The Way we Work and Highways Agency
supply chain portal will be your primary tools
handbook framework sets out how we, together with the
Department for Transport, manage and deliver

for using the framework and managing
projects through it. These electronic sites are
major improvement projects. updated frequently to ensure that the project
control framework remains accurate and up to
It is designed to ensure that we deliver road
date and it is important for users to refer back
projects which meet our customers’ aspirations in a
to them regularly. Paper copies of the product
cost efficient and timely manner.
matrix, individual product description pages
This handbook provides an overview of the project or templates should not be printed or stored
control framework. It explains the key things you electronically for future use as this creates
need to know in order to use the framework to version control issues and risks obsolete
manage major projects – those projects costing templates being used.
more than £10 million.
• The Highways Agency’s investment control
This handbook is one element of the materials that framework together with the Department for
you will need to use the framework. It should be Transport’s investment appraisal framework
read in conjunction with: which defines the financial governance
• The electronic project control framework arrangements applying to all Highways
community that defines the detail of what must Agency investments.
be produced and done. This is available on the
Highways Agency’s: • Tips for writing, reviewing and signing off a
project control framework product.
– Way we Work intranet site; and
– Supply chain portal extranet

<< <<

About the The project control framework is a joint Department

for Transport and Highways Agency approach
Senior responsible owner
Has overall accountability for the delivery of the
project to managing major projects. It is designed to help
us work together to develop and deliver major
project ensuring the project remains focused on
achieving its objectives. The SRO has the authority
control projects. It comprises: to make decisions concerning the delivery of the
project within a certain delegation. During the
• A standard project lifecycle
framework • Standard project deliverables
options phase this is either a DfT or Highways
Agency role depending on the type of project
• Project control processes and is a Highways Agency role during the
development and construction phases.
• Governance arrangements
The project sponsor
The framework is not just for project managers (This role is under review as at April 2013).
within the Highways Agency’s major projects
as overall ownership of the transport problem
H
directorate. It is for everyone involved in developing
that is being addressed by the project. They are
and delivering a major road project. This includes
accountable for ensuring that the project provides
DfT, other Highways Agency directorates and
the right solution to that problem. This is a DfT role
their suppliers.
throughout the framework.
Roles and responsibilities Senior users
There are five key roles within the framework. These Represent the interests of other Highways Agency’s
are detailed on page 40 but in summary directorates (for example the Network Delivery and
they are: Development and Traffic Management directorates
who will operate and maintain the road once the
Project manager project has been completed and handed over) and
Manages the development and delivery of a major act as focal points for liaison with their directorate.
project on behalf of the Agency. This is a
Highways Agency role throughout The project board
the framework. Oversees the delivery of the project and supports
the SRO as appropriate.

<< <<

About the The core principles of the framework •

All products are mandatory, although some
may not be appropriate depending on the
The lifecycle
project • All major projects follow a standard lifecycle

specific requirements of individual projects.
Where a product is identified as being not
control divided into stages

appropriate, it is important to record that this has
been determined after due consideration and
framework • A project can only be in one stage of the
lifecycle at any point in time

with the agreement of the SRO and project
sponsor. This is outlined in more detail on page 18.
• The stages align with key decision points in
Processes
the project’s development and delivery
•
Are only specified where:
• There is a clear process for moving – They are statutory
between stages
– They are needed to operate the project
The project deliverables
control framework
• The framework focuses on what needs to – There is clear consensus that there is a single,
be delivered by a project within each stage of 'best' process that should be followed
the lifecycle • Where there is already established best
practice process and guidance this sits with
• The project’s deliverables are called products,
the project control framework. For example,
for example a business case, an economic
the Design Manual for Roads and Bridges
assessment report and a project plan are
is linked throughout the framework where
all products
appropriate.
• Each product has a standard product
Governance
definition describing its purpose, the content
• The project control framework exists within the
and quality criteria
context of governance arrangements defined
• There are clearly defined roles and by the investment control framework and
responsibilities for product production, sign off investment appraisal framework.
and consultation
Flexibility
• The product matrix defines which products • The project control framework is intended to
are needed and at what stage(s) of the be used flexibly within the context of
lifecycle they need to be produced these principles.
<< <<

Major road Major road projects Core principles

All major road projects are progressed through the
projects project control framework which is split into three
• Entry into each phase is subject to the approval
of the DfT and ministers
phases as shown below.
• Funding for the project will be provided by DfT
Commitment to
develop Asset in and ministers on a phase by phase basis.
operation

Options Development Construction • Projects may drop out of the lifecycle at any
point up to the commitment to invest if they fail
Commitment
to invest value for money, affordability or other criteria
Commitment
to investigate
Roles and responsibilities for
Figure 2: The three phases of the PCF
major projects
Options phase – identifies the preferred road • During the options phase the senior responsible
solution to the transport problem. By the end of the owner is DfT for those projects with more than
phase there is certainty that, for example, the
one route option. For single option projects this
project will involve widening along a specific route.
role may be assigned to the Highways Agency.
Development phase – focuses on the design of the
preferred solution taking it through the necessary • If a project progresses into the development
statutory processes up to the point where a phase the Highways Agency becomes the
decision to commit to invest in building the road senior responsible owner (if they are not already)
solution can be made.
and continues this role in the construction phase.
Construction phase – is where the road solution is
built, handed over for operation and the project is • The project sponsor and project manager roles
closed down. are constant throughout the three phases. The
project sponsor is always DfT, the project
manager is always a Highways Agency role.

<< <<

The Strategy, shaping and prioritisation

It is assumed that before a project enters the
Projects can only ever be in one stage at any one
point in time. In most cases projects move through
Major project control framework it will have completed all seven stages in turn. However some stages may
not be required depending on individual project
a feasibility study during a strategy, shaping and
Projects prioritisation stage. Key activities in this pre-project circumstances and the requirements for single
option projects are outlined in more detail on
phase (PCF stage 0) include:
lifecycle • Identification and prioritisation of potential
page 12. Where stages are combined or omitted:
transport issues • This must be agreed with the project sponsor
and senior responsible owner in advance.
• Shaping, investigation and assessment of the
viability of transport scheme solutions to the
• The project manager must agree with the project
problem, including road network solutions
sponsor and senior responsible owner what to
• The initiation of a major road project (if deemed do with the deliverables required at that stage
the most viable solution to the transport issue) – in general, their delivery should be moved into
another stage if they are still appropriate to
Major Projects lifecycle the project.
Once initiated a project enters the Major Projects
lifecycle which breaks down the three phases of the
PCF into seven stages shown below in Figure 3.

Pre-project Options phase Development phase Construction phase

0 1 2 3 4 5 6 7
Strategy, Statutory Construction,
shaping and Option Option Preliminary procedures Construction commissioning Closeout
prioritisation identification selection design and powers preparation and handover

Figure 3: Major Projects lifecycle

<< <<

The The stages are:

Major 1
Identify options to be taken to public consultation

Projects Option
identification
Assess options in terms of environmental impact, traffic forecasts and economic benefits

lifecycle Refine the cost estimate of options (including an allowance for risk)
Carry out public consultation including exhibitions

Analyse comments received and select a preferred option

2 Refine the cost estimate for preferred option (including allowance for risk)
Option
Refine the environmental impact assessment, traffic forecasts, and economic benefits
selection
following public consultation if required
Produce an outline business case

Announce the preferred route

If early contractor involvement procurement method selected, appoint contractor
Carry out surveys (such as topographical, geotechnical, environmental)
For Planning Act 2008 schemes hold community consultation including exhibitions,
complete consultation report and resolve or rebut outstanding issues
3 Complete and freeze the preliminary design of the preferred route
Preliminary
design Prepare draft Planning Act 2008 development consent order (or Highways Act 1980
orders if the scheme is below the threshold for a nationally significant infrastructure
project (NSIP)), as appropriate
Complete the environmental assessment and prepare the environmental statement
Agree initial target cost with ECI contractor (if applicable)
continued
<< <<

The Publish notice of acceptance of Planning Act 2008 draft development consent order
and application (or notice of draft Highways Act 1980 orders if the scheme is below the
Major threshold for a NSIP) and environmental statement as appropriate (exhibitions may be
considered for Highways Act 1980 orders)
Projects 4
Arrange public inquiry for Highways Act 1980 orders (if required)
Under the Planning Act 2008 the Planning Inspectorate will decide on the preliminary
lifecycle Statutory meeting and examination of the application for development consent. We will need to
procedures register and comment as an interested party (the developer)
and powers
Present evidence and rebuttals to objections for Highways Act 1980 orders at inquiry
The Planning Inspectorate panel or inspector will make recommendations to the
Secretary of State
Issue secretary of state’s decision letter confirming whether orders/development
consent are to be confirmed as published in draft, rejected or amended
Confirm orders/development consent and respond to any high court challenges (if any)
Obtain approval to any advance works or advance statutory undertakers diversions
Agree costs of construction with the contractor. If ECI is procurement method, agree
5
final target cost
Construction
Produce the final business case
preparation
For Planning Act 2008 schemes place details of land to be acquired on deposit and
publish a notice to say where these can be inspected
Obtain notice to proceed
Issue notices to treat and enter take possession of land
6 Complete detailed design
Construction,
Construct and commission scheme
commissioning
and handover Hand over asset for operation with as-built drawings and health and safety file
Open scheme to traffic
Agree final account with contractor
7 Contractor completes outstanding works (or re-work)
Closeout Complete a review of project delivery
<< Complete POPE process <<

The Key decision points in the Major Projects lifecycle

The stages reflect the significant decision points in the project’s development and delivery.
Major
Projects Options Development Construction

lifecycle 1 2 3 4 5 6 7
Statutory Construction,
Option Option Preliminary procedures Construction commissioning Closeout
identification selection design and powers preparation and handover

Community Examination
consultation by
and Planning
application inspectorate
Options for for and Road opened
public consultation development decision by
consent* SofS*
Project Preferred route Commitment Close out
initiated announcement to construct

Figure 4: Key decision points within the Major Projects lifecycle

* Nationally significant infrastructure projects only. For projects under the threshold, Highways Act 1980 and Public Inquiry processes will apply.

<< <<

The Variations to the Major Projects lifecycle NB Single option projects must meet the above
criteria and should not be confused with projects
The PCF is designed to be used flexibly and a
Major revised lifecycle commencing in PCF stage 3
that require land take or an environmental
statement but only have one viable option.
Projects preliminary design has been developed for use
on single option projects. A revised product The projects that are therefore most likely to fall

lifecycle matrix (available on the electronic PCF sites) is also

in operation.
within this category are:
• Online widening
• Controlled or managed motorways
Single option projects
(including MM-ALR)
Single option projects are defined as follows:
There is a common misperception that all
a) Within the highway boundary and therefore with managed motorway projects can adopt the
no requirement for land take or associated revised lifecycle but this is only the case if they
statutory processes meet the criteria for a single option project
ie no land take etc.
b) No requirement for an environmental statement
Taking the example of a managed motorway all
c) The route is already fixed lanes running project, it may have ‘options’ with
regard to the operating regime at specific locations

Pre-project Options Development Construction

No requirement for an No requirement for PCF stage 6 and 7

options phase PCF stage 4 as is

Figure 5: The revised lifecycle for single option projects (assuming no land take or need an environmental statement)
<< <<

The (for example although through junction running is

the design option there may be some locations
Governance arrangements for single
option projects
Major whereby it is not appropriate) but this is not the
same as assessing different routes or whether to
Approval of the development phase budget should
be sought from the project investment control
Projects widen or bypass as per the option identification and group, investment control framework group and the
option selection stages of the traditional Major highways investment board in the usual way prior
lifecycle Projects lifecycle. It can therefore commence in to entering stage 3 preliminary design, including
PCF stage 3 preliminary design without the need for producing the client scheme requirements product
an options phase. The need for PCF stage 4 and the five DfT summary business case templates
statutory procedures and powers stage is also as part of the investment submission product.
negated as long as the project does not involve Schemes with a cost of £200 million or more will
any land take or the requirement for an also need to seek approval from the board
environmental statement. investment and commercial sub-committee and
HM Treasury.
Assumptions for adoption of the single option Any projects with specific risks or issues which may
project lifecycle affect the decision to give a full development phase
It is assumed that before a project enters PCF budget (eg uncertainty of scope; a low benefit to
stage 3 it will have previously obtained a cost ratio; political drivers; high value etc) should
commitment to investigate a single option such as be assessed to determine whether it would be more
MM-ALR or online widening. This will have been appropriate to apply for a stage 3 budget only,
achieved either by the completion of a feasibility subject to prior approval of this approach by the
study during the strategy, shaping and prioritisation SRO and DfT project sponsor.
stage or by assessing options under the traditional
Gateway reviews for single option projects
PCF lifecycle before adopting the revised lifecycle.
As with any project, teams are advised to hold a
It is also assumed that the project team will have gateway assessment meeting to identify their own
agreed with their SRO and DfT project sponsor that project specific requirements. It is envisaged that
it is appropriate to adopt a revised PCF lifecycle on for most projects, an abridged Gateway 1 / 2 would
their specific project. be appropriate early in PCF stage 3 to provide
assurance of a robust business case and to review
the delivery strategy.
<< <<

Products Products For some products we may also include a

mandatory process; templates; supporting topic
The project control framework focuses on what
and needs to be delivered at each stage of the project.
information or guidance and links to other
resources on the intranet and internet.
product The deliverables which are produced are called Many product definitions have been developed in
'products'. For example, a consultation leaflet, a
matrices business case or an economic assessment report
line with current DfT and Highways Agency best
practice process, guidance and standards. Where
are all products. They are the things we need to this is the case we will also link to these documents,
produce in order to plan, manage and progress for example, the Design Manual for Roads and
a project. Bridges is linked where appropriate.
Each product has a standard definition that
specifies the product’s:
• Purpose
• Content
• Quality criteria
• Roles and responsibilities relating to the product

<< <<

Products Product production, consultation and sign-off

All products in the project control framework have a defined set of roles and responsibilities associated
and with them. These roles and responsibilities define who:

product Generally, the person producing the product is free to choose who and how the product is produced
provided it meets the criteria set out in the product definition
Produces the
matrices product
However, if a product has a mandatory process then that process must be followed. Evidence that the
process was followed must be gathered and retained
In most cases the project manager is responsible for ensuring products are produced
Every product has one single point of accountability and therefore one single sign-off
Is accountable
The person signing off the product is accountable for the product being fit for purpose. This means that the
for the product has:
product and
– Been produced in line with the product definition content and quality criteria
signs it off
– Identified consultees have been properly consulted
Consultation must take place as part of product development and evidence of consultation must
be retained
There are two types of consultation:
Must be For technical / operational approval
consulted – The consultee is asked to quality assure certain technical or operational aspects of the product and give
approval. This includes for example, approving appraisal of the road solution by colleagues in the
in the Highways Agency network services directorate. However it also includes approval of other aspects such
production as traffic management plans
of the – The product cannot be signed off as complete unless it has been approved by the identified consultees page 21.
product For comment
– The consultee is asked to review the product and provide any comments
– These comments do not have to necessarily be acted upon. Whether they are taken into account is the
decision of the person accountable for the product but reasons why should be documented
The product is distributed when sign off is complete.

The product Evidence of distribution must be retained

must be Anyone who is consulted in the production of a product must be given a final copy of the product. Those
distributed to named under the distribution column within a product definition are identified because they have not been
involved in the production or consultation of the product but will have an interest in the final version of it

<< <<

Products Product matrices

The product matrix defines which products are needed and when. If a product is required at a stage then
and it specifies if the product is:

product
Produced The product is produced for the first time in the project lifecycle
matrices The product is updated with up to date information but no new analysis, for example, the risk management
Updated
plan is continually updated throughout the project lifecycle
As a project is developed and designed further analysis takes place reflecting the impacts of that design.
Refined Refining a product means adding detail as a result of further improved analysis to a product.
For example, a cost estimate is progressively refined across the project lifecycle.
A review is carried out to confirm whether the product might need to be updated or possibly refined –
although it is generally expected that no action is required and review does not mean re-write.
Reviewed
For example, client scheme requirements generally remain stable throughout a project but it may be
necessary to amend them in the event of any scope changes.

Figure 6 (page 17) shows an extract of the project control framework matrix.

<< <<

Products Product matrix

and Pre-project Options Development Construction

product 0
Strategy,
1 2 3 4
Statutory
5 6
Construction,
7

shaping Option Option Preliminary procedures Construction commissioning Closeout

matrices and
prioritisation
identification selection design and
powers
preparation and
handover
Client scheme requirements Produced Reviewed Reviewed Reviewed Reviewed Reviewed Reviewed
Scope Client phase remit Produced Reviewed Produced Reviewed Reviewed Produced Reviewed
Appraisal specification report Produced Refined Refined Refined
Order of magnitude estimate Produced
Options estimate Produced Refined
Preliminary estimate Produced
Cost
Initial estimate Produced
estimating
Developing estimate Produced
Final estimate Produced
Cost to complete estimate Produced Refined
Risk management plan Produced Updated Updated Updated Updated Updated Updated
Risk Risk register Produced Refined Refined Refined Refined Refined Refined
Qualitative risk assessment Produced Updated Updated Updated Update
Figure 6: Product matrix extract

The columns across the top of the product matrix requirement of each specific product at each
show all of the stages of the PCF. Users should individual stage.
read down the page to establish which specific
Some products may be a requirement of one stage
products are required at each individual stage and
only and others may be a requirement of multiple
whether they are to be produced, reviewed, refined
stages depending on their purpose. The product
or updated (page 16).
requirements of each PCF stage are summarised
The rows down the left hand side of the product into product checklists, which are used as part of
matrix show all of the products within the PCF. the planning process and stage gate assessment
Users should read across the page to establish the reviews (page 25).
<< <<

Products Product flexibility teams should review each product and establish for
their own specific project whether it is:
All products in the project control framework are
and mandatory and must be produced. The project a) required

product control framework does not have 'optional' products

but they may vary in their size and content
b) fit for purpose and

matrices depending on the type of project and its level

of complexity.
c) whether the level of detail outlined in any
supplied templates is appropriate for the size
and complexity of their project
The only exception to this is where it is obvious that
products are not required to be produced because The decision to omit products is on an exceptional
they are not appropriate to a particular project. basis, has to be agreed with the SRO and project
sponsor at the start of the stage and be recorded in
For example, production of a regeneration report is the comments section of the product checklist.
only required if the road scheme affects travel to,
from or within a regeneration area. Other products In some instances it may be acceptable to submit
(identified on the PCF product matrix as MM only) substitute products with the approval of the SRO
are unique to the operation of managed motorways and project sponsor. For example, a section 278
and so would not be applicable to a traditional agreement or NDD commissioning form would be
bypass or widening project. acceptable substitutes for a client scheme
requirements for those specific project types.
Whether or not a product is produced is determined
as part of the management of the stage. Project

<< <<

Tips for the Successful delivery of a large road project is a

complicated and demanding challenge which
Please do
• See the PCF as a useful tool to facilitate delivery
consistent needs to be expertly managed and it will not be
achieved by simply producing documents and
– not a barrier to it

and asking for comments on them. • Think carefully about what outcomes products
are designed to deliver, not just when they need
effective The PCF is there to help project managers
manage projects and the products are live
to be produced
• Produce and sign off products during the stage
application documents designed to help projects to progress
and for the range of issues identified in the
wherever possible to avoid a last minute rush in
the run up to the stage gate assessment review
of the PCF documents to be managed. Those people that
embrace the PCF and get the most out of it take • Remember that the PCF did not introduce
a deep interest in what’s in the products, whether anything new – it merely formalised all of the
existing documentation (much of it relating to
they are an acceptable standard and what issues
statutory processes) that was being produced
are being identified which need to be managed.
anyway
They do this with a forward looking sense of what
are the pitfalls and issues ahead which we need to Please don’t
address now? • View the PCF as a hindrance or a box ticking
If the PCF is approached as a paper based exercise
exercise where products are simply ticked off and • Apply it too rigorously or get bogged down in
put on the shelf, it will not be used in the way that is the detail – you will not fail a SGAR for
intended and no value will be added. producing a product in the wrong sized font
If users see themselves as mere post boxes • Focus solely on achieving a successful outcome
sending products to consultees for comments and at SGAR as although this is important, it should
back again to their consultants, they will miss the not be driving the project. Projects plans should
point that the aim of the PCF is to empower project set out how project objectives will be delivered
within the scope in the most cost effective and
teams and aid delivery, not to unnecessarily hinder.
appropriate manner using the PCF products to
assist in the process, not simply when products
will be produced. Successful SGAR outcomes
will then follow as a result

<< <<

Tips for the Three key principles of the

PCF to reinforce
part of the stage planning process. This could
be done as part of a SGAR (eg establish stage 2
consistent 1. Plan the coming stage properly focussing on
requirements at SGAR 1) or as part of a gateway
assessment review meeting.
and what outcomes need to be delivered.
Project plans should include products but not be
Proper planning is essential and fundamental to
effective good project management. SGARs need to be
the sole focus, the emphasis should be on what
each product is designed to deliver and not just be
application balanced with equal focus on the stage that has
just passed and the coming stage.
a box ticking exercise.
The implementation report for new standards is
of the PCF The PCF should be used to help deliver a good example of where the emphasis should
outcomes, not just products. The focus should be on what each product is designed to deliver.
be on the objective of the stage and what The template supplied is extremely basic but is
needs to be achieved, not just when products will designed to:
be completed.
• Ensure integrated project teams are aware of
The word framework should be emphasised any new standards that may have been
as templates can sometimes be followed too introduced since their project started
stringently. Project teams should review each
• Ensure that the potential impact of any new
product and establish for their own specific
standards are fully considered and understood
project whether it is required, fit for purpose and
whether the level of detail outlined in any • Ensure that new standards are either adopted
supplied templates is appropriate for the size or departures from standards are sought
and complexity of the project. as appropriate
Any variations should be agreed with the SRO at • Ensure that NetServ are kept fully consulted
the start of the stage (not in the final run up to and informed on the impact of new standards on
the SGAR) and be recorded in the comments individual projects
section of the product checklist.
The product is therefore not just about producing a
The most appropriate order of sequence piece of paper but should give confidence that any
between the PCF stage gate assessment change of standards have been considered and
review, the investment authorisation process incorporated into the design where practical and/or
and gateway review should be determined as where cost savings may be achieved.
<< <<

Tips for the 2. Consultation is a vital component – not

an afterthought
name. This may take the form of an electronic
minute or email as long as it clearly and
consistent Early product consultation is the key to PCF
success. Consultees should be identified at an
unambiguously confirms the extent to which the
product is fit for purpose and/or adheres to relevant
and early stage and told when and why their input will
be required.
guidance, procedures or legislation page 15.

effective An integrated project team should be established

3. Eliminate waste and focus efforts where
most needed
application and include all key consultees from Network
Delivery and Development directorate, NetServ etc.
The PCF is designed to be flexible and users are
actively encouraged to identify products which may
of the PCF Full advantage should be made of named contacts
such as the NDD senior users, who are familiar with
genuinely not be required on their individual
projects to ensure value for money and possible
the PCF and can advise who in their directorate
cost savings. Sometimes products may genuinely
need to be consulted on individual products.
not be required but this will vary between projects
Plenty of time for product review should be and with careful consideration it may be possible
incorporated into projects plans – it is not to omit some. An alternative may be to combine
reasonable to expect consultees to comment products or move them between the stages if it is
on products that are sent to them shortly before appropriate and there is good reason to do so.
a SGAR.
Where products can be omitted or combined,
Product progress should be monitored at regular this should be agreed with the SRO and DfT
progress meetings and a last minute rush to get project sponsor at the start of the stage and the
everything signed off should be avoided. justification noted in the comments column of the
product checklist.
Project teams should review the content and
quality of each product before it is circulated for Project teams are encouraged to consider whether
comment. It is unfair to rely on consultees to pick they really need to outsource individual products or
up any errors. whether they could do all or some of it themselves.
There is no need to get all consultees to physically Whether the level of detail outlined in any supplied
sign products off, just the person named under templates is appropriate for the size and
accountable and signed off by but evidence of complexity of the project should be agreed with
conformity is also required from any consultees with consultants before they produce anything.
<< ‘for technical/operational approval’ after their Review does not mean re-write. If after review a <<

Tips for the product is still fit for purpose and does not require
any further updating, time, money and effort should
changes, they are publicised in both regular PCF
newsletters and on the version control log.
consistent not be wasted re-writing it.
Major Projects’ instruction
and The PCF sets out the quality standard for what
needs to be produced but there should be no issue MPI-02-09-2012
effective if products are produced to an even higher
standard if the project warrants it and it is
PCF users are reminded of the contents of
MPI-02-092012 review of the project control
application providing value for money, for example more
time spent on producing the risk register may
framework which actively encourages PCF users to:

of the PCF ultimately result in greater cost savings. The key is • Trim away the fat from their products and avoid
waffle and duplication
to ensure that both the SRO and DfT project
sponsor are content with whatever has been or • Use the client scheme requirements as a central
will be produced. summary document to significantly reduce the
size of some products and avoid having to
It is important not to make SGAR packs too over
repeat the same background over and
complex. SGARs are not the place to present
over again
products as they should all have been signed off
in advance of the meeting and there is no need for • Version control their documents and tell each
them to be expensively bound and laminated. The individual reviewer why their comments are
key SGAR document is the PCF product checklist important and what benefit their views will add to
and this usually consists of a handful of pages only. the product

Paper copies of the product matrix, individual • Use the origins of PCF products to clarify why
product description pages or templates should each product is required and where it originates
not be printed or stored electronically for future from, often legislation or guidance
use as this creates version control issues and risks
obsolete templates being used. The PCF is a live
electronic site that is updated frequently and
users should check back regularly to ensure that
their products match the latest descriptions and
templates. To help users keep track of any
<< <<

How Stages are managed on a plan; do; review; basis.

stages Identify which products need to be produced during the stage by completing a product checklist

are Plan:
Ensure that the IT system PowerSteering is updated so that the product requirements match the most
recent version of the product matrix
managed before the Identify any products that are not appropriate to the project and record justification for not producing
stage
Produce a plan (in the widest sense) for the production of the products

Agree the plan with the senior responsible owner and the DfT project sponsor

Manage the stage against plan

Produce products
Do:
during the Consult on the products
stage
Get product sign-offs

Record actions taken and store documents properly in SHARE

Review delivery of products against plan and account for any variance

Review time and cost against plan

Review:
at the end of Undertake stage gate assessment review (page 25)
the stage
Obtain necessary investment authorisation

Undertake gateway review (if necessary)

<< <<

Project Governance of projects is provided through: Regular reporting

The Major Projects portfolio office defines and
Project assurance
assurance Investment authorisation/re-authorisation
maintains a schedule of regular reports that must
be completed according to the schedule. The
and Roles and responsibilities
project manager is responsible for completing the
reports on time.
governance
Project assurance Exception reporting
Project assurance provides the basic framework of Project managers must produce an exception
controls that assure: report if:
• the project is being managed and controlled as • The expected cost of the current phase is
directed by the SRO forecast to be higher than the approved budget
for that phase (excluding contingency)
• basic standards are being followed
- For projects in the options and development
• the project is well-managed phases the expected cost of the project as a
whole is forecast to be higher than the most
The project assurance controls within the project likely/central estimate endorsed by the
control framework are: Secretary of State
• regular reporting (right) • Stage end is projected to be more than three
• exception reporting and re-authorisation (right) months beyond the baselined end date of
the stage
• sign-off of products as they are produced
(page 15) • Where, in the opinion of the DfT project sponsor,
the scope of the scheme has changed
• stage gate assessment reviews (page 25) sufficiently to warrant re-authorisation
• gateway reviews (page 30) The exception report must be submitted to the
Major Projects portfolio office and DfT project
sponsor.

<< <<

Project Stage gate assessment reviews

Stage gate assessment reviews provide basic This section provides a summary of stage gate
assurance assurance that: assessment reviews. The Way we Work site
provides detailed information regarding process,
• The stage is complete and is within tolerance
and • The project control framework has
outcomes and how they are undertaken.

governance been followed Who attends the stage gate assessment review?
• The project is ready to proceed to the next Attendance at the stage gate assessment review
stage, subject to investment authorisation should be as follows:
Senior responsible owner
It is an evidence-based review that is intended
to draw on documentation and activities that the Highways Agency project manager
project team have already produced. DfT project sponsor
All projects must complete a stage gate Highways Agency major projects portfolio office
assessment review: representative
• At the end of every project stage as part of the
Senior users (as appropriate)
managing stage boundaries process (page 54)
Highways Agency project team representatives
• Every 12 months if a project stage is planned to
(as appropriate)
last more than 18 months (see tips for a
successful interim SGAR on page 30) Stage gate assessment review attendance may
only be delegated in exceptional circumstances
• Prior to seeking investment authorisation to
with the agreement of the senior responsible owner
move into the next phase (page 35)
and cannot be undertaken by correspondence.
All stage gate assessment reviews must be
planned at the project outset and must be
included in the project schedule and project
management plan.

<< <<

Project What is assessed in a stage gate

assessment review?
• There is a plan and cost estimate for delivering
those products
assurance For the stage being completed, the stage gate • The resources needed to deliver the plan have
assessment review confirms that: been identified and a plan is in place for
and • The risk potential assessment has been securing the resources

governance reviewed and updated

The review does not:
• The products are approved and signed-off
• Seek to review every single product produced
• Any variance from the planned products for the stage. This is done as part of the quality
are understood assurance when products are signed off during
the stage (page 15)
• Cost and time performance are within
acceptable tolerances • Make any assessment of the overall
management of the project; this is done by the
• There is evidence that project board meetings
gateway review (page 30)
have been held and plans, risks and issues have
been regularly reviewed • Make any assessment of the continued need for
the project; this is done by the investment
• Lessons learned have been captured for
authorisation process (page 35)
the stage
• Documents have been properly stored in SHARE Preparing for a stage gate assessment review
Stage gate assessment reviews are intended to be
For the next stage the stage gate assessment low cost and minimally disruptive as all products
review confirms that: will have been produced, consulted on, approved
• The project manager has identified which and signed off in advance – keep this in mind when
products will be delivered participating in a review.
• Risks associated with any proposed stage
derogations* are identified and assessed

* A deviation or exemption from a rule or law.

<< <<

Project Prior to the stage gate assessment review the

project manager must compile a review
been signed off and that plans, risks and issues are
regularly reviewed and updated. This might include
assurance submission pack. The pack comprises: sign off sheets for products and minutes from team/
progress meetings.
• Agenda
and • Current monthly management report Holding the stage gate assessment review
governance • End of stage report All stage gate assessment reviews must have a
chair (usually the senior responsible owner) who is
• Completed product checklist for the
accountable for determining the overall outcome of
current stage
the review.
• Product checklist for the next stage identifying
It is up to the chair to determine the structure of the
the products to be produced with baseline dates
review, the role of the reviewers and what specific
for completion
questions might be asked to determine the
• Project schedule outcome of the review.
• Change control log However as an example of how the review might be
held, the initial focus will be to review the product
• The risk register
checklist for the stage. Where it shows all products
• Cost estimate for the next stage (via the scheme are complete reviewers might ask questions to test
cost estimate) this. Where the product checklist is incomplete
reviewers will want to know the cause, what impact
This pack assists reviewers in making an overall
it has on the project progressing and what actions
assessment as to whether the project is ready to
must be undertaken to ensure its completion.
move to the next stage. Reviewers can ask for
additional products to be brought to the review. For In reviewing the current stage reviewers will also
example they may wish to look at those products on seek to understand how well change, risk cost and
the checklist which have not been completed. time are being managed on the project. This may
for example, involve reviewing evidence of current
Project managers should also consider what other
risk register and change log.
key documentation might need to be brought to
the review. For example, project managers need
to be prepared to evidence that all products have
<< <<

Project The final part of the review then looks forward to

see how prepared the project is to move to the next
•

Reviewers are not there to determine if the
project is still the right project to invest in. The
assurance stage. This includes reviewing and agreeing the
product checklist for the next stage.

focus must be on whether a project manager is
complying with the framework
and In terms of behaviours, when holding the review: • The review should not be seen as something

governance • The focus of the review should not be about

criticism, put-downs or point scoring

which will always stop a project moving to the
next stage. In most cases, if products have been
complete and plans are in place for the next
• The review needs to create a positive
stage, the review simply provides the project
environment where open and transparent
manager and SRO with confidence that they can
discussions can take place
continue to progress the project (subject to
• Reviewers should not seek to delve into the investment authorisation) and that it is supported
detail within individual products. This will already by their peers
have been done as part of the sign off of
that product

Outcome of the stage gate assessment review

There are four potential outcomes:
Outcome Basis for decision
Green Proceed to next stage. All products complete and quality/progress validated

Proceed to next stage, but complete certain products or

actions Outstanding products and actions can be completed
within a reasonably short period and identifiable
Amber Report back on completion within a set timescale
timescales which will not be programme critical or
Chair to decide if follow up meeting is required or impact statutory or safety processes
evidence of completion can be done via correspondence

Do not proceed to next stage until required products and Products critical to the successful delivery of the project
Red/ actions have been completed are incomplete
Amber The outcome of further work cannot be predicted or
Then repeat the stage gate assessment review delivery is in doubt
Factors critical to success cannot be resolved or outside
Red Do not proceed – stop
actions require the project to stop at that point
<< <<

Project The outcome of the review is recorded on the stage

gate assessment certificate, including any agreed
•

The purpose behind an interim SGAR is to hold
a stock take of progress to date and to ensure
assurance actions. By signing this certificate the review also
provides sign off that the product checklist and

that all products have either been produced or
are on track to be produced by the end of the
and schedule for the next stage has been completed
and agreed.

stage. The outcome that is awarded is a
prediction of how the project is likely to fare at its
governance Where the project is awarded an amber outcome
full stage end SGAR based on evidence to date,
and so even if no products have been fully
it is at the discretion of the chair to determine
completed or signed off, a green outcome could
how assurance is provided that outstanding
still be awarded if the SRO was confident and
products and actions are complete. This
reassured that everything was on track to be
can be done by a follow up meeting or
completed by the full stage end.
correspondence. The outcome of the review
and the agreed actions must be recorded in the • The Planning Act 2008 introduced the
stage gate assessment certificate. requirement to carry out pre-application
consultation and it is strongly advised that an
Where a project is awarded a red/amber outcome a
interim SGAR should be held during PCF stage
full stage gate assessment review must be
three prior to entering into the pre-application
repeated and another stage gate assessment
consultation process, to establish if the required
certificate produced.
products have been completed and to assess
Tips for monitoring, booking and running a readiness to proceed.
successful interim stage gate assessment review
• Whenever a stage is expected to span 18
months or more, interim SGARs should take
place a year after the last full stage end SGAR.
If the current stage is likely to take, say, 15
months, there is not a requirement to hold an
interim after one year as the full stage end SGAR
will occur three months later, unless of course
the SRO specifically wants to hold one.

<< <<

Project Gateway reviews • Time and cost targets have a realistic basis
A Gateway review is a 'peer review' in which • Lessons are learned
assurance independent project managers from outside the
• The project team are gaining input from
project use their experience and expertise to
and examine the progress and likelihood of successful appropriate stakeholders.

governance delivery of the project.

A Gateway review provides assurance and
Gateway reviews are a mandated assurance
process for all publicly funded major projects,
support to the senior responsible owner that: although not all reviews will apply to all projects.
SROs and project managers should engage early
• Suitable skills and experience are deployed on with the Centre of Excellence to agree which
the project gateways are required and when.
• All stakeholders understand the project status All major projects should usually undertake
and issues Gateway reviews as shown in the table below.
• There is assurance that the project can progress Gateway reviews are undertaken as part of the
to the next phase managing stage boundaries process (page 54).

Gateway Major project phase/stage

Entry to the options phase (undertaken on behalf of DfT) (option
1 Business justification
identification stage)
2 Delivery strategy Entry to the development phase (preliminary design stage)
3a Investment decision Entry to the statutory procedures and powers stage
3b Investment decision End of the construction preparation stage
4 Readiness for service Prior to open for traffic or consent to operate
Following handover into operations and before the end of the
5a Operational review and benefits realisation
defects period
A further operational benefits review may need to be
5b Operational review and benefits realisation
undertaken. The timing is at the discretion of the SRO

<< <<

Project Differences between a Gateway review

and a PCF SGAR
How does a Gateway review differ from a stage
gate assessment review?
assurance The Gateway review is an independent peer It is simplest form a stage gate assessment
review focuses on the quality assurance of a
review, usually over three to four days to examine
and the progress and likelihood/confidence of project. Whilst it does not review individual
products, it assesses whether the PCF is
governance successful delivery of the project.
being followed.
The reviews are intended to support government
projects to achieve their intended outcomes. By definition this means the assessment of whether
products have not only been completed, but also
The Gateway review provides assurance and signed off as being fit for purpose, having followed
delivery confidence rating to the senior responsible the correct procedures in the producing the
owner that: products. This includes ensuring the correct
• Suitable skills and experience are deployed on consultation has taken place on those products.
the project Detailed quality assurance is carried out as
• All stakeholders understand the project status products are signed off but this review acts as the
and issues and are providing appropriate input overarching quality assurance, assessing the
completion of the product set for the stage as
• There is assurance that the project can progress a whole.
to the next phase
The assessment of whether a project is ready to
• There is a delivery confidence rating move to the next stage is largely based on
• Lessons are learned assurance that the current stage is completed
and sufficient plans, such as a next stage product
• Suitable governance procedures are in place checklist and schedule are in place to move to the
and are being followed next stage.

Further detailed guidance on the Gateway review

process is available for Highways Agency staff on
the portal.

<< <<

Project The stage gate assessment review is very much

an inward facing review, chaired by the SRO.
learned from other similar projects and from its
own earlier stages. To be effective, the review team
assurance The SRO has the overall responsibility for
determining the outcome.
can request to see any member of the integrated
project team and specialists/stakeholders external
and The Gateway review provides a strategic
to the team. Stage gate assessment reviews do
not make any such assessment. Whilst Gateway
governance overview at key decision points in the project
lifecycle tailored to the project’s current situation,
reviews also assess readiness to move to the next
stage, this assurance is based on different
issues and needs. It is carried out by independent
assessment criteria to the SGAR, in particular
peer reviewers to provide assurance to the SRO.
whether the right skills and experience are
The review focuses on overall confidence that the deployed on the project and whether stakeholders
project will deliver its intended outcomes in line with are actively engaged.
its business case and places emphasis on lessons
The table on the following page demonstrates these
differences in more detail.

<< <<

Project PCF SGAR Gateway review

Timing
assurance
Two to three hour review Three to four day review
Reviewers are independent of the project team/
Reviewers are member of project team/organisation. The review
Composition is chaired by the SRO organisation and appointed on the basis of their skills
and and experience
For the stage being completed, the SGAR confirms that:
governance The risk potential assessment has been reviewed and updated;
the products are signed-off; any variance from the planned
products are understood; cost and time performance are within
acceptable tolerances; there is evidence that project board
meetings have been held and plans, risks and issues have been
regularly reviewed; lessons learned have been captured for The review team’s delivery confidence of the project
Assessment the stage is based on its ability to meet its objectives and is
criteria assessed by drawing on the evidence, interviews
For the next stage the SGAR confirms that: and experience of project delivery
The project manager has identified which products will be
delivered; risks associated with any proposed stage derogations
are identified and assessed; there is a plan and cost estimate for
delivering those products; the resources needed to deliver the
plan have been identified and a plan is in place for securing
the resources
Prior to the SGAR the project manager must compile a review
submission pack comprising of a current monthly management
Type of The project team must make available all relevant
report; end of stage report; completed project checklist for the
key documentation to the review team plus any other
preparation current stage; product checklist for the next stage identifying the
documents that they request to enable them to make
material products to be produced with baseline dates for completion;
their delivery confidence assessment
project schedule; change control log; the risk register; funding
for the next stage (via the scheme cost estimate)
Varies depending on the RPA score but typically the senior
responsible owner, the DfT project sponsor, the project manager, The external review team, the integrated project team
Personnel Major Projects portfolio office representative, NDD / TM senior and other key stakeholders as requested by the
user and any other interested parties. Contractors / consultants review team to be interviewed
do not attend
Green: Proceed to next stage
The report, giving findings and recommendations
Amber: Proceed to next stage, but complete certain products
or actions with categories of critical, essential or recommended
as necessary and the delivery confidence
Outcomes Red/amber: Do not proceed to next stage until required assessment giving a colour status and a statement
products and actions have been completed – then repeat the from the review team outlining what they believe to
stage gate assessment review
be the likelihood of success
Red: Do not proceed – stop
<< <<

Project Summary of stage gate assessment reviews

and Gateway reviews
investment authorisation process and Gateway
review should be determined as part of the stage
assurance The diagram below shows the relationship between
planning process. This could be done as part of
a SGAR (eg establish stage 2 requirements at
the lifecycle and the stage gate assessment
and reviews and Gateway reviews.
SGAR 1) or as part of a gateway assessment
review meeting.
governance The diagram is indicative and the timing of NB: Gateway review 4 should take place prior
the Gateway reviews may vary depending on to open for traffic or consent to operate. SGAR 6
the project specific circumstances. The most should take place approximately three months after
appropriate order of sequence between the project road opening to coincide with the production of the
control framework stage gate assessment review, as-built documentation.

Pre-project Options Development Construction

Stage gate
assessment 1 2 3 4 5 6 7
reviews

Gateway
1 2 3a 3b 4 5a
reviews

Figure 7: Summary of stage gate assessment reviews and Gateway review points

<< <<

Project Investment authorisation investment control group and the highways

programme board, this will allow the project team to
All investment decisions are ultimately taken by the
assurance Department for Transport ministers. The specific
draw down limited additional funding for the options
or development phase budget, without seeking
and requirement for investment authorisation and
re-authorisation are determined by the:
further ministerial investment authorisation.

governance • Department for Transport’s investment appraisal

framework and
Levels of clearance and authorisation
Phase by phase ministerial
• Highways Agency’s internal investment control investment authorisation
framework All projects must obtain clearance at the
Ministerial investment authorisation is required at appropriate level before being submitted to the
the beginning of each phase approving: minister for investment authorisation. The
appropriate level will depend on the overall cost
• Budget and duration for the project phase of the project. Normally a stage gate assessment
(options, development and construction) review must take place before step 1. Confirmation
• Planned duration for the project as a whole, of the outcome of this review must be included in
including planned start and end dates for the any submission seeking Highways Agency or
construction phase DfT clearances. If the outcome was not green,
a brief explanation of the reason(s) why should
• The outturn range estimate for the project as a be included.
whole (minimum (P10), most likely (P50),
maximum (P90)) All projects must progress through the following
steps to attain ministerial investment authorisation:
As long as the project remains within the approved
cost and timescale, there is no requirement to Step 1
seek ministerial investment authorisation between Gain clearance from the Highways Agency’s major
stages other than those which correlate with the projects investment and control group.
phase boundaries. Step 2
Depending upon the phase budget authorised, Gain clearance in accordance with the Highways
DfT may also hold a level of contingency against Agency’s investment control framework group.
the budget. Subject to authorisation by the project

<< <<

Project Step 3
For projects expected to cost under £50 million
Responsibilities
The Highways Agency project manager is
assurance (IAF tier three) clearance is provided internally by
the Highways Agency. For projects expected to
responsible for obtaining all Highways Agency
internal clearances. The DfT project sponsor is
and cost over £50 million and under £200 million
(IAF tier two) clearance is provided by the
responsible for obtaining all DfT clearances and
coordinating all ministerial investment submissions.
governance highways investment board.
Step 3a
For projects £200 million or over (IAF tier one)
clearance is provided by DfT’s board investment
and commercial sub-committee and clearance
must also be sought from HM Treasury at entry to
the development phase and construction phase.
Step 4
Seek investment authorisation from the minister.

<< <<

Project Summary of investment authorisation and

ministerial decisions
Please refer to Annex D of the Highways Agency’s
investment control framework for full details of the
assurance The diagram below summarises the stages at
which Highways Agency, DfT, ministerial and
approval process.

and HM Treasury decisions are required.

governance
Pre-project Options Development Construction

Project
investment
control
group

ICF and
Highways
investment Investment Investment Investment
board re-authorisation (if required) re-authorisation (if required) re-authorisation (if required)

BICC and HM Treasury Only for projects over £200 million. Only for projects over £200 million.

Minister Commitment Agreement Preferred route Draft Orders Commitment

to or public announcement/ orders decision to invest
investigate consultation commitment publication
options to develop

Figure 8: Summary of investment decision points

<< <<

Project Investment authorisation of 'suspended' schemes shall seek budget authority based on a fully
evidenced change request as follows:
From time to time it may become necessary to
assurance 'suspend' schemes due to funding, capacity or • If the change request for additional budget is
other constraints. Decisions to 'suspend' less than the available phase contingency
and schemes are made at the sole discretion of the (options or development), the SRO shall sponsor
a submission to the highways programme board
governance Department for Transport and are subject to
ministerial approval. (page 35)

At the point of suspension, a budget to meet any • If the change request for additional budget is
costs associated with the scheme during its greater than the available phase contingency
suspension and a time frame for re-appraisal of the (all phases), the SRO shall sponsor a
scheme will be set. submission to highways investment board
seeking investment re-authorisation by the
Suspended projects will continue to be subject to Secretary of State for an increase in the phase
regular reporting requirements and stage gate budget. The DfT project sponsor shall brief the
assessment reviews. SofS and secure final investment re-authorisation
For suspended schemes which are subsequently as necessary
re-instated, investment reauthorisation will All project investment re-authorisations must follow
be required. the guidelines laid down by the Highways Agency’s
investment control framework and DfT’s investment
Investment re-authorisation appraisal framework.
Investment re-authorisation is triggered whenever
The project sponsor and senior responsible owner
an exception report is produced (page 24).
will decide whether investment re-authorisation
should be sought immediately or deferred until a
When to seek investment reauthorisation
project is ready for a decision on whether it should
In the event of a project forecasting to exceed be allowed to proceed to the next stage.
its approved budget or deviating from the
agreed programme or scope, an investment As a general rule if the scheme is within three
submission paper should be raised to the project months of the planned completion of a project
investment control group. The project manager stage, investment re-authorisation may be deferred.

<< <<

Project Reporting requirements

The project sponsor must be informed of all
assurance changes/increases to phase budgets.

and The highways investment board, as part of

regular monthly reporting on project progress must
governance be informed of:
• The potential need for increases to the
construction phase budget, as soon as that
need is identified
• Actual changes to the construction phase
budget within the Highways Agency
delegated limit
• Any changes to the project delivery timetables
to accommodate cost increase during the
construction phase

<< <<

Roles There are five key project roles within the project
control framework:
• Being aware of the business objectives of the
project and ensuring that these are satisfied
and • Project manager • Ensuring that the project produces the required
products, to the required standard of quality and
responsibilities • DfT project sponsor
within the specified constraints of time and cost
• Senior responsible owner
• Establishing the project organisation, defining
• Project board roles and responsibilities and deliverables for
• Senior users each team member
The following sections set out the general • Performing project planning, monitoring and
responsibilities and accountabilities for each control on the project
of these roles. In addition, specific roles
associated with products are set out in the product • Establishing the safety ethic within the project
definitions (page 15). team and ensuring that the project complies with
safety regulations
Project manager • Providing a safe working environment for
The project manager is the individual responsible the execution of work directly under their
for managing the development and the delivery of responsibility
a project on behalf of the Highways Agency, under
• Ensuring that statutory processes are followed
remit from the DfT project sponsor and on behalf of
and appropriate consents are obtained
the senior responsible owner.
• Ensuring compliance with the Highways
The project manager leads and manages the
Agency’s standards and processes – including
project team with the authority and responsibility to
the project control framework and investment
run the project on a day-to-day basis.
control framework
The project manager is responsible for:
• Managing and administrating any consultant or
• Managing the project on a day-to-day basis supplier contracts
within the remit provided by the DfT project
sponsor and delegations provided by the senior • Managing project risks, including the
responsible owner development of contingency plans

<< <<

Roles • Initiating corrective action when necessary • Agreeing any changes to the client scheme
requirements document during the course of
• Reporting through agreed reporting lines on
and project progress
the project
• Commissioning the Gateway one review and
responsibilities • Managing project resources, including project
works contractors
liaising with the Highways Agency on the
implementation of the recommendations
• Ensuring that the DfT project sponsor has • Managing, and leading on, DfT’s assessment
relevant up to date information on the project
of the outline and final business cases for
and is involved in major decision making,
the scheme
including stage gate reviews
• Managing, and leading on, provision of
• Leading and directing a multi-discipline project
DfT comments on products for which DfT is
team which may consist of development, design
a consultee
and construction, commercial, planning, testing
and commissioning and support personnel • Receiving progress reports and exception
reports from the project manager and following
DfT project sponsor up as necessary
(This role is under review as at April 2013).
• Attending stage gate assessment reviews and
The DfT project sponsor is responsible for
being entitled to attend progress meetings and
representing DfT interests throughout the project
meetings of the project board. They are
life cycle. The project sponsor owns the transport
responsible for the outcome of the stage gate
problem that is being addressed and ensures that
assessment review for low risk projects during
the project provides an appropriate solution to that
the options phase
problem. There is only one DfT project sponsor for
any project. • Co-ordinating submissions to ministers
seeking investment authorisation and
The DfT project sponsor is responsible for:
re-authorisation throughout the project life cycle
• At the initiation of a project defining the project’s
objectives, scope and requirements, as set out • Assisting the project manager in the resolution of
in the scheme requirements document, problems, issues and change control
consulting as necessary with other potential
• Managing DfT's relationship with external
stakeholders
stakeholders with an interest in particular
<< • Agreeing the phase remit at the start of a phase schemes <<

Roles Senior responsible owner

The senior responsible owner has overall
• Commissioning appropriate assurance to
determine that the project is fit to proceed to the
and accountability for the delivery of the project next stage/phase, for example Gateway reviews
ensuring the project remains focused on achieving
responsibilities its objectives. They have the authority to make Senior users
decisions concerning the delivery of the project The senior user role is undertaken by the NDD
within a certain delegation. regional divisional director (or their delegated
representative), representing the interests of
The senior responsible owner is responsible for: Network Delivery and Development directorate
• Providing clear leadership and direction through (NDD) and Traffic Management directorate (TM).
the life of the project
The primary purpose of the role is to act as the
• Ensuring the project governance arrangements client for major project schemes under
comply with the project control framework development and delivery in their region. Senior
through: users are responsible for:
– review and sign off of key products • Representing NDD / TM on the scheme project
board and stage gate assessment reviews
– deciding the outcome of stage gate
assessment reviews • Ensuring scheme requirements have been
clearly and completely defined
– ensuring change is effectively managed and
escalated appropriately • Challenging design, maintenance and
operational assumptions made by the
• Ensuring that the project is technically and project teams
financially viable and compliant with the
• Being a single point of sign off for the design
Highways Agency’s corporate standards and
from an NDD / TM perspective
strategic business plans
• Ensuring that the scheme developed and
• Ensuring the project is ready to seek investment
delivered is fit for purpose and can be
authorisation
successfully operated.
• Managing the interface with key senior
• Acceptance of the scheme being delivered and
stakeholders
the handover into maintenance and operations
<< <<

Roles Project board

The project board supports the SRO and takes an
Other roles
This handbook focuses on the five key roles within
and overview of the project. The time that the project the framework. We recognise that there are many
board can allocate to an individual project is other individuals who have an important role in
responsibilities normally limited and so the project board’s role is developing and delivering a major project. This
very much management by exception. includes, for example:
Until further guidance has been developed the • The integrated project team which includes
composition of the project board and the timing of consultants and contractors and Highways
meetings shall be determined by the SRO. Agency project support staff
• Highways Agency colleagues consulted in the
production of products

<< <<

Project Maintenance and operational handover of

a scheme from the Major Projects project team
should be transferred to the appropriate person to
facilitate file management in the future.
handover to the Network Delivery and Development service
delivery team should take place on the date of
Any scheme finance issues should be dealt
with and settled by the project team.
and scheme completion/road opening. However,
the Major Projects project team will retain The project team will be responsible for arranging a
closeout responsibility for issues arising from the joint inspection of the scheme between the
construction during the one year defect period. managing agent, the employers agent and the
Other outstanding work which may be completed contractor before the end of the defect period
by Major Projects and the contractor post ie nine months after completion in the case of a
handover includes work to side roads which can scheme with a one year defect period. Both
only be carried out once traffic has been removed, Procurement and the MAC/ASC, TechMAC / RTMC
and the completion of the planting contract. and other specialist suppliers should flag this up
to the service delivery manager at the appropriate
Queries received by the service delivery
time. A further inspection should occur prior to the
team on major project scheme issues prior to
civils and technology handover of the asset.
handover will be referred to the Major Projects
project team. After handover the service delivery Land to be disposed of and landscape
team will decide who should respond after maintenance areas and their contract
discussion with the project team. The project team requirements including the extent of any
must always be prepared to assist service delivery outstanding maintenance and defect periods
team colleagues on these issues. must be specifically identified to property
management; and disposal and service delivery
Handover notes for the service delivery
teams by the project team prior to handover.
team are to be prepared by the project team
identifying any long term outstanding issues. Projects often include new local access roads,
Every effort should be made to resolve issues altered side roads and junctions, and mitigation
prior to handover. Close liaison with the Network land, which will become the responsibility of the
Delivery and Development senior user is advised. local highway authority to maintain. It is essential
for early and continual liaison to take place with
A schedule is to be prepared for the service
the local highway authority prior to and during
delivery team of any paper files to be sent to
construction to enable timely local highway
registry. The ownership of files held in SHARE
authority handover to take place, preferably
<< <<

Project in advance of the civils maintenance (MAC / ASC)

handover certificate being signed. To aid this
Documents required for handover
Documents required for handover (these will
handover process, a memorandum of understanding with
the local authority including a handover process
normally be available in SHARE in which case
links should be provided. Some documents may
and flowchart has proved effective in the past. The
timing of the local authority handover should
be stored in other relevant Highways Agency
systems such as HAPMS, SMIS or IAMIS).
closeout be discussed and agreed with the Network Delivery
• As built drawings/documentation
and Development senior user.
• Updated health and safety file from
Handover and closeout process chart PCF stage 2
The chart (figure 9 page 48) has a time line along • Template for handover schedule
which are listed the relevant documents and
processes required to be completed at various • Civils maintenance (MAC / ASC) handover
times leading up to and following scheme certificate – including outstanding
completion (for example when the road is open matters checklist
to traffic and all traffic management has been • Technology commissioning plan
removed). The chart is shown graphically to
simplify the process and to highlight the need to • Technology maintenance (TechMAC / RTMC)
ensure handover and closeout documents are documentation and certificate
developed and updated in good time, as and when • Operational (TM/RCC) handover
appropriate throughout the lifecycle of a project. documentation and certificate
The chart essentially follows the guidance already
provided through the project control framework • Updated permit to connect from PCF
with the exception that project closeout follows stage 5
maintenance and operational handover, rather
than coinciding with it. Time needs to be allowed Maintenance and operational handover
between handover and closeout to enable as many To take place upon scheme completion, with
outstanding issues as possible to be resolved prior the issuing of the certificate of completion
to project closeout. timed to coincide with the signing of the civils
maintenance (MAC / ASC) handover certificate.
If this cannot be achieved, then by agreement
<< <<

Project with the Highways Agency, a health and safety

file sufficiently complete to enable effective
Road safety audits (RSAs)
A mandatory audit report produced during the
handover operation must be available at the time of
handover, together with an agreed outstanding
development and construction phases of a
project to help identify potential safety issues and
and matters checklist (which forms part of the civils
maintenance (MAC / ASC) handover certificate).
mitigate these where possible. Four audit reports
are produced throughout the project lifecycle
closeout SGAR 6 should take place approximately with RSA stage 3 and RSA stage 4 of particular
three months after scheme completion, to relevance to the handover and closeout process.
coincide with the completion of the as built RSA stage 3 should be undertaken at the end of
documentation and the health and safety file. construction and preferably before the scheme
is open to traffic to minimise any potential risks
Early and continual liaison with Network Delivery to road users. RSA stage 4 is undertaken at 12
and Development, maintenance service providers, months and 36 months after the scheme has
and Traffic Management (regional control centres opened to traffic and includes the analysis and
and traffic officer service) should take place to reporting of accident data. Issues arising from
ensure that what is delivered meets the previously the 12 month RSA should be resolved before
agreed requirements for handover. There should be project closeout.
one handover to both Network Delivery and
Development and Traffic Management, including Project closeout
technology. Caveats/exclusions to handover Project closeout is achieved when any
should be the exception and if found necessary, outstanding works are completed and the final
kept to a minimum. account is agreed with the contractor. This
On schemes where a phased/staged handover should be achieved as soon as reasonably
into operation and/or maintenance is proposed practicable after handover and in any event no
early agreement and approval should be sought later than two years after scheme completion.
from the Network Delivery and Development SGAR 7 should take place at this point. At this
senior user, project board and regional operations time the closure checklist should be produced
board (ROB). and agreed with Network Delivery and
Development, following which Network Delivery
and Development takes full responsibility for the

<< <<

Project new asset. This checklist, developed at a closeout

review workshop, details all outstanding claims and Good practice guide to handover
handover issues (including any remaining issues from the
outstanding matters checklist), and identifies 1 Set up early handover meetings to
and who is to be responsible for these. discuss and agree handover
documentation with adopting bodies
closeout It is important to avoid a situation arising where
all outstanding issues automatically revert to (internal and external).
Network Delivery and Development – it is
anticipated Major Projects will still continue to 2 Set up trackers to populate and monitor
be responsible for a number of issues if they progress – link all documents to the tracker
are best placed to deal with them (eg property/ to make them easy to find.
lands issues).
3 Send sample handover packages at an
New issues may arise following project closeout early stage to establish an acceptable
which are not identified on the closure checklist. standard by the receiving authority.
In the first instance these should be directed
to Network Delivery and Development as network 4 Present the overall tracker at each monthly
owner who will coordinate responses with support, progress meeting with the client so that all
as appropriate, from Major Projects and other parties are kept informed.
delivery partners.
5 All information which will form the basis
of the handover package should be stored
electronically in the relevant scheme area
on SHARE. Exceptions are where
documents are A2 or larger (or over 20mb)
and cannot be stored on SHARE.

<< <<

Project PCF stage 2 PCF stage 3 PCF stage 5 Minus 3 months Scheme completion Plus 3 months Plus 1 Plus 2 years Plus 3

handover (road open and traffic year maximum years

Option Preliminary Construction minimum maximum
selection design preparation management removed)

and MP
MP/contractor
1 year Defects
period ends
MP/contractor
landscaping

closeout
contract ongoing
3 to 5 years
Project
closeout
Maintenance and Following project
operational handover and closeout NDD has
Construction and commissioning NDD*
certificate of full responsibility for
completion issued the new asset
*NDD responsible for maintenance
and operation of the new asset

Health and safety Technology Handover schedule *Liaison on: • Gateway • Part 1 claims - • Final account
review 4 SGAR 6 and
file and maintenance commissioning and permit to • As built 2nd notice agreed Stage 4 RSA
prior to as built
and repair plan connect first documentation • Part 1 • Project closeout (+36 months)
opening) documentation • Stage 4 RSA
first produced produced. claims (+12 months) report
strategy • Health and safety • Stage 3 and health and
Maintenance and
statement repair strategy file RSA (prior safety file • 1 year after POPE • Closure checklist
first produced statement refined to opening) • SGAR 7
• PICG stage 5a
Gateway review 5a

Documents required for

handover are listed on
page 44.
(These documents should
* Early liaison with suppliers and other Highways Agency normally be in SHARE in
directorates must take place throughout the lifecycle of the which case links should be
project to ensure key handover activities are developed and provided).
completed prior to scheme completion/road opening

Figure 9: Based on the Major Projects lifecycle

KEY: Major Projects (MP) responsibility

Major Projects/Network Delivery and Development joint responsibility

Network Delivery and Development (NDD) responsibility

SGAR Stage gate assesssment review

RSA Road safety audit
<< <<

Annex A Project control processes Managing stage boundaries

As each project stage nears completion, ‘review’
The plan-do-review basis is implemented through
project five processes:
the current stage and confirm that it is complete
and ‘plan’ for the next stage.
control Initiating a project
Managing change
Ensure that the project is adequately scoped and
processes established prior to starting the first stage and that
Is the process of managing ongoing change to the
project in a controlled manner.
a ‘plan’ for the first stage is in place.
Closing a project
Controlling a stage
Ensure that the project is properly closed and that
‘Do’ the stage – manage the project on a day to day
any residual issues are handed over into ‘business
basis – delivering products, monitoring progress,
as usual’ as appropriate.
managing risk, etc.

At each lifecycle stage

Initiating a Controlling Closing

project a stage a project

Managing
change

Managing
stage
boundaries

Figure 10: Project control processes

<< <<

Annex A Initiating a project

Initiating a project is a critical stage in the strategy
Preparing for the first stage
Ensure that the project is properly established
project shaping and prioritisation process and comprises and all of the project management documentation
three key activities: needed to run the project is in place. A checklist for
control Accepting the project brief
this is provided on page 51.

processes Ensure that the documentation used to initiate the Seeking authority to proceed
project is complete, consistent and of acceptable Obtain the authorities needed to proceed into the
quality. A checklist for this is provided on page 51. first stage of the lifecycle. The required authorities
are set out in the investment authorisation on
page 35.

Accepting Preparing Seeking

the project for the authority
brief first stage to proceed

Pre-project First stage

Figure 11: Initiating a project

<< <<

Annex A Accepting the project brief checklist Preparing for the first stage checklist
Review and confirm the acceptability of the
project following products which make up the project Preparing for the first stage
brief provided by the strategy, shaping and
control prioritisation process.
Register the project with the Major Projects
portfolio office

processes Accepting the project brief Complete a risk potential assessment for the
project and send the resulting score to the
Centre of Excellence
Client scheme requirements

Identify which products must be delivered during

Value for money assessment
the options identification stage and complete the
baseline dates in the product checklist for that
Client phase remit stage and obtain sign off from the SRO

Options phase budget Create and baseline the project management

plan and project schedule for delivering those
Scheme estimate (order of magnitude estimate) products

Create and populate the risk register etc

Provide copies of the baselined product

checklist, project management plan and project
schedule to the Major Projects portfolio office

<< <<

Annex A Controlling a stage

Controlling a stage consists of seven activities,
Controlling a stage checklist

project some of these have specific products on the Requirements for controlling a stage
product matrix which are produced as part of the
control
Hold progress meetings and update the schedule
Major Projects lifecycle. at least once a month.

processes Controlling a stage adds some additional

requirements around the regular project
Comply, in a timely manner, with the
requirements of the regular reporting schedule.

management activities that must be undertaken Monitor costs and manage against the cost plan
at least once a month.
as part of the stage. For example, holding project
progress review meetings. Actively review risks at least once a month.

The project manager must retain evidence that they Ensure that risk mitigations are reflected within the
project management plan (in the widest sense).
have undertaken these activities and this will be
reviewed at the stage gate assessment review at Ensure that the document management process
the end of the stage (page 25). has been followed (below).

Managing documents
Managing
The approach to managing documentation needs
documents
to support the basic principles of project control
Managing framework. For example, that all evidence of
Planning
contracts product production and sign off is retained.
Producing Project managers have overall responsibility for
products
the management of documentation. They must
Assessing
and Managing ensure that:
reporting risk • Once a product is signed off and therefore
progress
completed that the product is ‘frozen’. This
Managing
costs means that no further changes can be made to
that product. Signed off products must be frozen
before a stage gate assessment review.
Figure 12: Controlling a stage
<< <<

Annex A • It is up to the project manager to decide how to

freeze a product, but this might include
•

All products, documents, scheme information
and supporting data produced by ourselves and
project converting the document into a PDF document

our consultants, must be filed in SHARE, or as a
paper record. Documentation not compatible
• If a product is updated during a stage or stages
control each update must be retained. For example a

with SHARE may be stored using other suitable
electronic storage mediums
processes

risk management plan will be continually
updated throughout the stage
• If a product is refined through the lifecycle each
version must be retained and frozen for the
stage gate assessment review. For example, by
the end of a project there will be seven versions
of the scheme cost estimate

<< <<

Annex A Managing stage boundaries Preparing for the next stage

Ensure that the 'plan' is in place for the next stage.
Managing stage boundaries overlaps with
project controlling a stage. It starts close to the end of A checklist for this is provided on page 55.
a stage, carrying the project through the stage gate
control assessment review, investment authorisation and
Stage gate assessment review
Undertake a stage gate assessment review
processes gateway review processes and into the next
stage of the lifecycle. the following diagram is
(page 25).
indicative and the timing of the gateway review Seeking investment authority
may change depending on the stage and project Obtain the authorities needed to proceed to the
specific requirements. next stage. The required authorities are set out in
Preparing for stage end the investment authorisation on page 35.
Undertake a 'review' of progress against plan and Gateway review
confirm that the stage is, indeed, complete. A Undertake any necessary gateway review
checklist for this is provided on page 55. (page 30).

Preparing
for stage
end
Stage gate Seeking Gateway
assessment authority review
review to proceed
Preparing
for the
next stage Next stage

Figure 13: Managing stage boundaries

<< <<

Annex A Preparing for stage end checklist Preparing for the next stage checklist

project Preparing for stage end Preparing for the next stage

control Update a risk potential assessment for the

project and send the resulting score to the Centre
Complete the risk potential assessment for the
next stage and send the resulting score to the

processes
of Excellence Centre of Excellence

Review the products produced against the Update the risk register, issues register, etc
baselined product checklist for the beginning of
the Stage
Identify which products must be delivered during
the next stage and complete the baseline dates of
Confirm that products are signed-off and the product checklist for that stage
supported by proof of consultation
Update and baseline the project management
Confirm that any variance in the products plan and project schedule for delivering those
produced is understood and can be justified products

Confirm that there is evidence that mandatory Provide copies of the baselined product
processes have been followed checklist, project management plan and project
Confirm that documents are properly stored in schedule to the Major Projects portfolio office
SHARE
Prepare and send out the stage gate assessment
Complete the product checklist for the current review submission pack
stage indicating dates of completion and
providing comment on any products not Hold the stage gate assessment review
yet complete
Produce any necessary investment submissions
Ensure there is evidence that the requirements of
(if needed)
Controlling a stage have been met

Review cost and time against the versions Complete a gateway review (if needed)
baselined at the start of the stage

Arrange the stage gate assessment review

<< <<

Annex A Managing change • Accepted or rejected

Who approves the change depends on the time,
Within PCF change is defined as any issue which
project will have an effect on the development and delivery cost and scope tolerance set for the project.
of the project whether negative or positive. Change If the change is within tolerance then the change
control can come from a number of sources and includes, request is submitted for approval to the project
manager or, in more significant cases, the senior
processes for example, the materialisation of risks or changes
in legislative or technical standards. responsible owner and DfT project sponsor.

Any change, no matter how big or small must be: Before the change can be approved relevant
key stakeholders must be consulted on the
• Captured and assessed change. For example, if the change requires an
The starting point for any change is to increase in cost then those involved in the
complete a change request form. This form production and sign off for the scheme cost
records the nature of the change and assesses estimate will need to be consulted.
its impact on the project specifically in terms of
time, cost and scope. Changes must not be Any stakeholder with an interest in the project can
accepted unless a full impact assessment raise a change request. It is the project manager’s
(appropriate to the size of the change) has responsibility to ensure that all changes are
been completed. captured, assessed and escalated appropriately.
Assessing the impact must always also include Tolerances
whether the change affects products. This Tolerances for managing change will be set by the
includes whether products will require to be SRO at each stage as part of the management of
updated and the cost and time implications of the stage. These will be reported to the DfT project
doing this. sponsor and the Highways Agency major projects
All changes are also captured on a change log portfolio office to ensure a consistent approach
and every project must have and regularly across projects.
update the change log. The log not only records Anything above the project tolerances will
potential change but summarises its impact trigger an exception report (page 24). Where
(taken from the change request form) and this involves a departure from the original
monitors and tracks the change through to approval the project will also need to seek
implementation (if accepted). investment re-authorisation.
<< <<

Annex A Closing a project Breaking projects into sub-projects

There are theoretically a number of circumstances
Closing a project ensures that the project has a
project distinct end point rather than drifts into operational where it may be appropriate to break a project into
management. a number of sub-projects. For example where:
control • Development and/or construction of elements of
processes Closing a project the project need to be progressed on significantly
differing timescales – for example, a project that
Finalise all project documentation
has significant traffic management issues
Confirm that all documents are properly stored associated with it or is subject to funding
in SHARE constraints
Archive
• The procurement strategy for the project seeks
Hand over financial documentation to reduce risk by letting significant elements of
the work to different suppliers and, potentially,
Hand over contract documentation under differing procurement regimes

Hand over any remaining as built drawings to • It would lower the overall risk profile of the
the operator project to manage it as separate and distinct
sub-projects
Hand over health and safety file to the operator
In such cases, a project may be divided into
Complete a project close out report and send to sub-projects at any stage or phase boundary with
the Major Projects portfolio office the agreement of the project investment control
group / the highways investment board as
Hold post project review
appropriate; although it would usually be sensible
Obtain final stage gate assessment certificate
to aim to split the project into sub-projects at
phase boundaries.
Each sub project is then taken forward
independently. This means that each sub
project has its own project schedule, risk register,
product checklist etc.

<< <<

Contents Acronyms & About this About the project Major road The Major Projects Products and Tips for the consistent & How stages Project assurance Roles & Project handover Annex A - project
abbreviations handbook control framework projects lifecycle product matrices effective application of the PCF are managed & governance responsibilities and closeout control processes
If you need help using this or any other Highways Agency
information, please call 0300 123 5000 and we will assist you.

You may re-use this information (not including logos) free of charge in any format or medium,
under the terms of the Open Government Licence. To view this licence,
visit http://www.nationalarchives.gov.uk/doc/open-government-licence/
or write to the Information Policy Team, The National Archives, Kew, London TW9 4DU,
or email: psi@nationalarchives.gsi.gov.uk.

This document is also available on our website at www.highways.gov.uk

If you have any enquiries about this publication email

ha_info@highways.gsi.gov.uk or call 0300 123 5000
Please quote Highways Agency publications code PR01/13

Highways Agency media services Bedford S120525

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