The impact of the affirmative procurement policy on affirmable business enterprises in the South African construction industry.
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Date
2000
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Abstract
The construction industry in South Africa is envisaged to play a pivotal role in the reconstruction of the
South African economy, via the delivery of economic and social infrastructure. The skewed ownership I
patterns prevalent in the construction sector, resulted in the South African government utilising public
sector procurement as a mechanism to address these imbalances, and to promote wider participation I
in public sector construction opportunities.
This dissertation analyses the role of the construction industry in South Africa, and explores the
rationale behind utilising public sector procurement as a mechanism to promote wider participation in
the construction industry in South Africa. The research then focuses on the application of the
Affirmative Procurement Policy (APP) on construction projects procured by the National Department of
Public Works, in order to evaluate the impact which this policy has had on the growth and
development of Affirmable Business Enterprises (ABEs).
The research evaluates the primary policy outcomes, via the development of appropriate indices and
a diagnostic quadrant comparator, and concludes that the application of the APP has had a positive
impact on ABE participation, with levels of participation varying across construction sub sectors and
categories. It was also found that financial premiums, borne by the State in adopting this policy, were
nominal when compared with the initial projected outcomes and the overall benefits.
The overall performance of ABEs, measured against that of non-ABEs, was then tested to ascertain
whether the adoption of the APP was a necessary and sufficient condition for ABE enablement and
empowerment. The research concludes that there is a difference in overall performance between J
ABEs and non-ABEs, and that supply side interventions and capacitation programmes are required to
mitigate the increased risk exposure by the State, when engaging ABEs on construction projects. The :
research also analyses the variation in the levels of participation of ABEs, in the different construction
sub sectors and concludes that the manner in which ABEs are structured and their internal business
processes tend to establish operational limitations, which influence their scope of activitiies to a larger
extent than the existence of eternal sub sector thresholds. Similar characteristics were,observed in
non-ABEs of a similar size, inferring that the problems encountered relate to business development
and growth of small and medium enterprises, in general.
The research also. analyses the impact that the APP has had on subcontracting relationships and the
promotion of structured joint ventures. It concludes that whilst the requirements of the APP has seen
the development of formalised subcontracting relationships, the form of subcontracts that are currently
utilised do not comply with the requirements outlined in the APP, which are aimed at eradicating unfair
subcontracting conditions. The adoption of the APP has seen an increase in structured joint ventures
between ABEs and larger established contractors. The analysis of these joint ventures concludes that
they provide an effective means of transferring expertise, provided that they are structured appropriately.
The dissertation concludes with recommendations on APP policy refinements, mechanisms to
enhance compliance and opportunities for international application. The recent enactment of the
Preferential Procurement Policy Act (Act 5 of 20(0) in South Africa indicates that several elements of
the APP are likely to be prescribed as mandatory requirements for public sector procurement by
different government institutions and across the different industrial sectors. It is therefore important
that the areas identified for further research be pursued, to ensure optimal policy outcomes across a
range of industrial sectors.
Description
Thesis (Ph.D.)-University of Natal, Durban, 2000.
Keywords
Industrial procurement--South Africa., Construction Contracts--South Africa., Construction industry--South Africa., Theses--Civil engineering.