Grasping institutional complexity in infrastructure mega-projects through the multi-level governance system: A case study of the Hong Kong-Zhuhai-Macao Bridge construction
Yi HU1(), Yun LE1, Xinglin GAO2, Yongkui LI1, Mingqiang LIU3
1. Department of Construction Management and Real Estate, School of Economics and Management, Tongji University, Shanghai 200092, China 2. Hong Kong-Zhuhai-Macao Bridge Authority, Zhuhai 519060, China 3. Research Institute of Complex Engineering and Management, School of Economics and Management, Tongji University, Shanghai 200092, China
This study analyzes the design and operation of multi-level governance system for the smooth delivery of infrastructure mega-projects with high institutional complexity caused by market transition. From an institutional perspective, this study scrutinizes the structure, elements, and dynamics of the governance system of infrastructure mega-projects and then proposes an integrative framework based on the inductive case study of the Hong Kong-Zhuhai-Macao Bridge mega-project. Multiple evidences of archives, field studies, and interviews related to the case project are triangulated to further analyze the institutional effects, specifically those with government logics and market structures, on the design and operation of the three-level governance system. Results reveal that the co-evolution between governments and markets in China has shaped the vertical levels of the mega-project governance system and has further affected their evolution and operation across various stages of project development. This study contributes to the rapidly emerging research on complex system governance by proposing a systematic model of three-level mega-project governance to enhance the timely delivery of infrastructure mega-projects within budget.
. [J]. Frontiers of Engineering Management, 2018, 5(1): 52-63.
Yi HU, Yun LE, Xinglin GAO, Yongkui LI, Mingqiang LIU. Grasping institutional complexity in infrastructure mega-projects through the multi-level governance system: A case study of the Hong Kong-Zhuhai-Macao Bridge construction. Front. Eng, 2018, 5(1): 52-63.
Minutes of the HZMB Task Force Minutes of the HZMB Advanced Work Coordination Group Minutes of the joint works committee of the three regional governments State Council’s approval on the preliminary project design
Online information
Website of the HZMB Authority (www.hzmb.org, assessed on August 2015–ugust 2017) Website of the HZMB-related HKSAR projects (www.hzmb.hk, assessed on August 2015–August 2017), established by the Highways Department, HKSAR Government More than 20 news reports published in practitioner-oriented journals, Chinese newspaper databases and online news portals (e.g., xinhua.net, Chinanews.com)
Open publications
Issues 1–37 (March 2010–April 2017, 5–6 issues per year), Hong Kong-Zhuhai-Macao Bridge Magazine published by the HZMB Authority
Journal papers, reports and book
17 papers authored by senior executives and staff of the HZMB Authority (obtained from China National Knowledge Infrastructure databases, www.cnki.net) About 10 papers, reports and books published by major management and technical consultants
Tab.1
Phase
Date
Project milestones
Project initiation
2003 (July)
NDRC and HKSAR Government completed the study on the transport connection between HKSAR and the west side of the Pearl River
2009 (March)
The bidding for the preliminary design of the bridge main-body project was determined
2009 (October)
The State Council approved The Feasibility Analysis Report on the HZMB Construction
Project planning and preparation
2010 (February)
Governments of HKSAR, MSAR, and Guangdong province signed The Agreement on the Construction, Operation, Maintenance, and Management of HZMB
2010 (March)
Ministry of Transport issued the official reply on the preliminary design documents of the bridge main-body project
2010 (May)
The biddings for major contractors and consultants of the main-body project were started
Project execution and closing-out
2011 (January)
Ministry of Transport approved the construction start request of the bridge main-body project
2016 (September)
All main bridge structural components were installed
2017 (July)
All main undersea tunnel components were installed
2017 end
The bridge main body was completed
Tab.2
Date
Institutions and event details
Operation mechanism
Tasks
2003 (August)
HZM Bridge Advanced Work Coordination Group (AWCG) established by the State Council Convenor: representatives of the HKSAR government Members: NDRC and HKMOSC representatives and representatives from the three local governments
a) Having 1 – 2 meetings per year b) All the decisions should be agreed by all three local governments; if not, the issue will be sent to the central government for coordination
Conduct project initiation works, such as the feasibility analysis, project finance plan and project development planning
2004 (March)
An affiliated office established by AWCG
A standing body including about 13 persons
Assist AWCG’s works and execute the decisions if necessary
2006 (December)
HZM Bridge Task Force established by the State Council Director: NDRC’s associate director Associate director: Vice minister of the Ministry of Transport Members: NDRC representative, Ministry of Transport’s representative and representatives from the three local governments
Having a meeting every year
Establish a high-performing organization and coordination systems for improving decision efficiency and promoting project development
2010 (May)
Joint Works Committee of the three local governments (JWCTLG) established by the central and three local governments Convenor: representatives of Guangdong provincial government Members: representatives from the HKSAR and MSAR governments
Having 2 – 3 meetings every year
a) Take the following works of AWCG and b) Monitor the execution of the bridge main body undertaken by HZMB Authority
2010 (September)
An affiliated office established by JWCTLG
A standing body including 7 – 8 people
Assist JWCTLG’s works and execute the decisions if necessary
2010 (July)
HZMB Authority established by the JWCTLG
A standing office with a staff of about 100
Take charge of the construction, operation, maintenance, and management of the project
Tab.3
Fig.3
Fig.4
Fig.5
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