Chapter Five - Construction Subcontracting in Singapore
Chapter Five - Construction Subcontracting in Singapore
4.1 Introduction
This chapter discusses subcontracting in general terms and introduces the Flexible Firm
model. It includes the present role played by subcontractors in the construction industry.
It also reviews the literature on subcontracting in Singapore with special emphasis on the
4.2 Subcontracting
In most of the twentieth century, small and medium-sized establishments (SMEs) were
modern" labor relations and technologies hindered the process of economic development
form of domination of large firms over small ones where large firms benefited from low
wages and flexible work arrangements in small firms. Therefore, it was thought that the
SME sector would be eliminated by more efficient and advanced large firms (Taymaz
depending upon complete or partial production of goods and services (Taymaz and
Kilicaslan, 2002). Subcontracting could also be a situation where the firm offering the
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specifications or plans provided by the firm offering the subcontract (Holmes, 1986).
Holmes (1986), following Watanabe (1971) and Chaillou (1977) and others, identified
arises when two firms have (vertically related) complementary assets or technologies
supplier with full control over the development, design and the method of production, but
explains subcontracting in terms of casual labour and shows the different categories.
Similarly, Bresnen et al. (1985) identify ‘supply and fix’ and ‘labour-only’
variability in the types of work undertaken and the form of relationship between the main
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contractor and the subcontractor. In the construction industry, labour-only subcontracting
is very common. This system involves the temporary employment of general labourers or
tradesmen who are either self-employed or work for a subcontractor for sections of a
project (Bresnen et al., 1985). The primary function is to help the main builder lighten the
load of full construction work by sharing it among the subcontractors (Pietroforte and
costs for the main builder, particularly in trades that the main builder is not well-equipped
quite common for contractors to engage subcontractors for most of the trades, especially
those which require special skills. However, the large number of subcontractors involved
generates high levels of construction waste as they use mainly unskilled foreign workers.
With this, waste generation of the projects due to subcontractors’ performance has
implementation of waste management plans (Ling and Lim, 2002). Understanding main
Singapore construction industry calls for a close look at (1) the need for subcontracting
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Debrah and Ofori (1997) defined a subcontractor as one who performs a particular trade
under the supervision of a main contractor. It also includes one who provides labour to
subcontractor is by virtue of specialization among the various trades, not wholly because
Ofori and Loh (2000) suggested that subcontractors are needed due to the following
reasons:
• Different projects have different features and requirements and as a result, it would be
uneconomical for the main contractor to keep all the required specialized skilled
If the main contractor is established, he may retain a group of general workers, unskilled
or semi-skilled, to assist the subcontractors as well as to carry out the minor operations on
site. The main contractor would normally also provide the necessary tools, plant and any
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4.4 The flexible firm model
New pressures are causing companies and their employees to consider a wide variety of
novel ways to perform tasks. The common themes impacting employment plans of the
majority of firms are: (1) market stagnation, (2) economic uncertainty, (3) technological
change, and (4) reduction in working hours. Companies are seeking flexibility that is
functional, numerical, and financial in nature. Thus, employment practices are shifting in
Flexibility has gained currency for its analysis of changes in workplace organization, in
particular, for analyzing labour utilization (Broadbent, 2002). Atkinson’s flexible firm
model (1984) is an example of how theorists have characterized these changes. It focuses
on ways in which greater use of an adjustable periphery, less rigid work practices,
and competitiveness (Hunter et al., 1993). He observes that employers have created a
According to Guerrier and Lockwood (1989), two main approaches to flexibility seem to
have emerged. The first approach is to develop a core of permanent full-time employees
Typically this has been the response from the manufacturing sector. The second is to rely
on part-time, casual and short-contract staff to provide the necessary variation in the
number of employees required. It is normally expected that these employees would only
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The model can be viewed as a new strategic, innovative tool in response to changes in a
change, unemployment, legal restrictions on union actions and most importantly global
competition (Ofori and Debrah, 1998). The model suggests that one can design the
workforce to proactively meet business needs through flexible staffing arrangements. The
key characteristic of the flexible firm model is that it emphasizes the core-periphery
workforce.
The extensive use of subcontracting in Singapore is evidenced by the survey results (see
section 8.3.5) and case studies (Table 9.5). This suggests that main contractors are
The concept of a flexible firm was proposed by Atkinson (1984) so as to recognize that
organizations will require enhanced flexibility to meet the ever-evolving market and
competitive pressures. The flexible firm model is a strategic model of labour utilization
challenges such as market uncertainty, cost pressures and technological change (Atkinson
and Meager, 1986). Atkinson (1984) pointed out that there are three different kinds of
flexibility. They are (1) Functional flexibility; (2) Financial flexibility; and (3) Numerical
flexibility.
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4.4.1.1 Functional flexibility
Functional flexibility allows the employer to quickly and smoothly transfer employees
between activities and tasks. Which means either the deployment of multi-skill craftsmen
moving between different types of skilled jobs or moving workers between indirect and
direct production jobs, or even a complete change of career. During the short and medium
term, when products and production methods change, functional flexibility will result in
the ability of the same labour force to change with them (Atkinson, 1984).
It was highlighted by Atkinson and Meager (1986) that financial flexibility is sought for
two main reasons. First, employees’ salaries and other employment costs reflect the state
of supply and demand in the external labour market. The significance lies more in
relativities and differentials between groups of workers rather than in an across-the board
push to reduce wages, and the implications include a continued shift to plant level
bargaining and widening differentials between skilled and unskilled workers. Secondly,
and probably of greater importance in the long term, pay flexibility means a shift to new
pay and remuneration systems that facilitate either numerical or functional flexibility,
Numerical flexibility enables the firms to have the ability to adjust the level of labour to
meet fluctuations in demand. During short term changes in demand for labour, numerical
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Furthermore, it facilitates the smooth implementation of various hiring and firing policies
between the manager and the workers. The conclusion would be that at any time the
numbers employed or working would therefore exactly match the numbers required.
Atkinson’s (1984) flexible firm model provided an early and innovative framework to
analyse the move towards greater use of contingent labour, the adoption of employment
compulsory competitive tendering in the public sector. Procter et al. (1994) argue that
the flexible firm model provides a framework for focusing on the extent of change and
development of the new work patterns at the level of the enterprise, providing a more
The flexible firm model analyses the segmentation of the workforce utilizing the concepts
of core and periphery (Atkinson, 1984). This model could offer a starting point for
labour workforce. The model employs the distancing strategy which requires the
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4.4.2.1 The core work force
The core workforce is characterized by permanent, highly skilled employees with internal
career paths (Wood, 1989; Procter et al., 1994). They tend to experience a higher degree
of job security with resources provided for training in firm-specific skills not readily
flexibility (Hakim, 1987b; Burgess, 1997). “Core” groups of full-time employees would
provide their organizations with functional flexibility: a pool of skilled employees that
The flexible firm model also includes numerical flexibility, such as the expansion and
The peripheral workforce has been examined from a range of perspectives. Atkinson
(1984) argues that the peripheral workforce is associated with the organization’s
development of numerical flexibility. The key function or strategic aspect of this sector
for the organization is the undertaking of day-to-day activities which are important but
However, the peripheral workforce, as defined by Atkinson (1985), is more complex than
originally thought. For example, Walsh and Deery (1997) suggested that it is now clear
that employment systems are not simply bifurcated. Indeed it has been argued that the
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distinction between core and periphery is essentially misplaced, and that part time and
temporary workers might constitute, both numerically and strategically, the core
Pollert (1988) insisted that the ‘flexible firm’ model conflates employment developments
due to sectoral restructuring, with new ‘manpower policies’, masking the importance of
Deery and Jago (2002) suggested that the core-periphery model is more complex than
originally thought with the two groups being demographically homogeneous. It also
appears that it is necessary to identify members of the periphery using attitudinal tests
rather than simply observing the demographic groupings of individuals. Pollert (1988)
‘flexibility’ to be a neat and bold model fraught with methodological and conceptual
problems.
Others such as Williams (1993) and O’Reilly (1992a,b) also discussed the conceptual,
methodological and empirical problems involved in the use of the term ‘flexibility’ and
cover the views of its protagonists and critics. Similarly, Geary (1992) observed that the
tendency to see flexibility as good and rigidity as bad is far too simple, as flexibility
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Moreover, Hakim (1990) pointed out that in certain cases, companies have used ‘anti-
core-periphery’ strategies as they had abandoned the use of peripheral workers after
unpleasant experiences. This view appears to be consistent with Geary’s (1992) assertion
that the widespread use of flexibility has not resulted in any significant benefits to many
workforce complexities within the manufacturing sector, there is a need for more
accurate modelling of the service sector workforce. The challenge for current researchers
in this area is to accommodate the depth and complexities of such modelling (Deery and
Jago, 2002).
For the flexible firm model to work, it requires a sophisticated interplay of strategic
business planning and human resource management (Ofori and Debrah, 1998). When
human resource management is unclear on the long-term business needs for labour
pressures; this can result in poor employee relations, reduced quality and productivity.
Adoption of the flexible firm model allows for greater use of subcontractors in the
Under the flexible firm model, majority of the employees are self-employed, part-timers
and workers of subcontractors. They are mainly local workers. The model offers
employees both functional and numerical flexibility, but this model is most probably
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temporary (Ofori and Debrah, 1998). Most important of all, the model is applied to
The development of the ‘flexible firm’ model has rekindled interest in research on
The tasks of speciality subcontractors may appear straightforward upon first examination,
but further consideration of their role shows that they have to concurrently engage in
numerous preparation, production and scheduling tasks across many different projects
(Tommelein and Ballard, 1998). It is noted that subcontractors play a significant role in
the success of construction projects. This is because main contractors use subcontracting
changes. First, given that capital investment is small and technical knowledge widely
suppliers do not have substantial bargaining power since most construction inputs are of a
general type and are supplied by competitive industries (Hillebrandt, 1989; Ball, 1988).
Also, the discrete nature of production reduces market liquidity by making supply and
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demand more difficult to adjust. This increases uncertainty because the activity level of
the firm depends on tenders as well as on just a few contracts (Gonzalez et al., 2000).
In relation to the construction industry, Druker and White (1995) mentioned that main
contractors use subcontractors for two main reasons. These are: (1) down-loading
subcontractors play a very important role in a construction project as they make up for
the lack of manpower, technical know-how, etc. of the main contractor (Pietroforte and
Costantino, 2002). They carry out most, if not all, of the works on site.
Subcontracting does have its strengths and weaknesses as illustrated above. From the risk
management point of view, subcontracting allows the main contractor to transfer some of
the risks and financial burdens of a large project onto other numerous subcontractors’
organizations (Pietroforte and Costantino, 2003; Yau 1993). On the other hand, the main
contractor relinquishes some degree of control over the work by subcontracting. If high
waste generation occurs and other difficulties arise, the main contractor’s task of
responding and making corrections to the deviations will be more complicated and
sometimes almost impossible, because of the lack of direct control due to the multi-level
subcontracting which is often involved. Nonetheless, the main contractor will need to do
a cost and benefit analysis to weigh the advantages and disadvantages of subcontracting
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4.6 The relationships between the subcontractors and the main contractors
The “Rethinking Construction” report by Sir John Egan set out to revolutionise the UK
construction industry and responded to the observations made by the Latham Report
(Latham, 1994). One of the key issues identified by this report was the need for greater
efficiency (Egan, 1998). In this sense, it was argued that the main contractors and
There exists a mutual relationship between the subcontractors and the main contractors.
The quality of work the subcontractors deliver affects the performance of the main
contractors. Normally, the working relationship between the main contractor and the
subcontractors extends beyond one project. It is due to mutual trust and past working
experiences between both parties that the cooperation continues (Lim, 2003a).
In Japan, the relationship between the subcontractor and the main contractor is unique
(Bennett et al., 1987). The main contractor depends on the subcontractors to execute his
work. The main contractor is obligated to improve the capabilities of his subcontractors
management guidance, and guarantee of the subcontractors’ profit level (Bennett, 1991).
Such features are not found in Singapore. Firstly, it is not common for a subcontractor to
remain exclusively at the service of one main contractor. Secondly, the main contractors
in Singapore tend to address their own interests first (Debrah and Ofori, 1997).
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Since it is of the lowest priority, the main contractor neglects the welfare of the
subcontractors (Bennett, 1991), it affects their performance, which, in turn, affects the
industry (Debrah and Ofori, 1997). The main contractor-subcontractor relationship has
been a focus of interest in the literature (Kale and Arditi, 2001), yet its impact on waste
In the production aspect of the construction process in Singapore, the main contractor is
usually regarded as the principal player. He has very few direct employees on a project,
beyond the managers and engineers deployed for project coordination and quality control.
The subcontractors are responsible for the supply of labour and capital to execute the
participants in the construction process (Lim, 2003a). Figure 4.1 shows the typical
Subcontractors take various forms but they may be conveniently divided into two
categories. The first is commonly termed “trade subcontractor”. They are, in fact, groups
of tradesmen and workhands and are usually employed by the main contractor to
undertake labour intensive work as formwork construction and finishing work. The
1990).
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Developer / Client
Architect
Other
Consultants
Main Contractor
The system of contracting can be divided into the direct labour system and the
subcontracting system. Under the subcontracting system, the subcontractor may supply
materials only, labour only or both. Figure 4.2 illustrates the present system of
contracting in Singapore.
Domestic subcontractors refer to those to whom the main contractor sublets part of the
work entirely at his own discretion. In Singapore, domestic subcontractors are commonly
engaged in labour-intensive trades such as formwork, roofing, tiling, and painting. They
are also employed in trades where a large portion of their work requires special
machinery and plant for a short duration, for example, excavation and piling (Lim,
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2003a). However, the contractor shall not engage any subcontractor without prior written
consent of the architect (Wong, 1990). In practice, architects do not usually withhold
their consent and the main contractors seldom seek such approval (Lee, 1996).
System of Contracting
Source: Author
On the other hand, the employer may wish to take over the right of subcontractor
selection and then specify to the contractor the identity of the subcontractor to be used.
The reasons may include the requirement for more control over critical aspects of the
work performance so that the client can be assured of the cost and quality of the work.
The subcontractors may be nominated or named, depending on the means by which the
employer exercises his selection rights. Nominated subcontractors are in trades such as
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piling, plumbing, air-conditioning, lifts, fire fighting and prevention, and other
strategy creates difficulties for both employers and employees; the main problems for
employers being: (a) declining standards of quality and (b) falling productivity levels
(Debrah and Ofori, 2002). Moreover, the work of subcontractors’ workers is difficult to
coordinate, supervise and monitor as they have a temporary and insecure relationship
with the firm (Heery and Salmon, 1997; Debrah and Ofori, 2002). Also, subcontracting
has adverse effects on workers’ wages, working conditions, bargaining and union
representation (Underhill and Kelly, 1993; Austrin, 1980; Debrah and Ofori, 2002).
An alterative to the labour subcontracting system is the direct labour system. According
to Leong et al. (1994) and Lim (1996), among many other authors, the direct system of
hire direct skilled labour such personnel are mostly in the basic trades: concretors,
bricklayers and carpenters. Small teams of such skilled staff are hired directly by the
contractor as their services are required throughout the project, and hence there is not
much risk of redundancy. Direct workers are also engaged to undertake work where the
work at the interfaces of different trade operations (Ofori and Debrah, 1998).
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Morton and Jagger (1995) presented the argument for a return to direct employment,
proposing that a project that offers continual employment has its advantages: (i) it
enables employing contractors to use workers more efficiently and therefore less
expensively, and (ii) it is more likely to generate a sense of commitment and shared pride
in the work from employees. It is generally recognized that the major disadvantage of
employment instability is the effect it has on training and skills. The characteristic
method by which construction workers are employed has reduced the level and
availability of skills and made the control of quality on sites and the allocation of
The majority of the construction workers under the direct labour system in Singapore are
foreigners and many, although certified as skilled in their countries of origin, are not
considered as skilled in Singapore because they do not meet the stringent criteria for
skilled workpeople (CIDB, 1996). Since they are allowed to stay in Singapore for a
maximum for four years, most contractors are not interested in sponsoring them for off-
site training courses. Wilkinson et al. (1986) note that in Singapore, even where main
contractors employ direct operative workers, they are also ‘distanced’ as they too are
temporary. They are moved from site to site on very short notice. Under these
The directly employed workers are daily-rated and paid fortnightly under a wage system
similar to that used by the labour subcontractors, but the direct workers receive some
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fringe benefits from the contractors such as a preference for living accommodation onsite
(Ofori and Debrah, 1998). Ofori and Debrah (1998) highlighted that there exists great
differences in the wages of the local construction workers and their foreign counterparts.
Contractors incur additional expenses with respect to foreign workers, including agents’
The Singapore construction industry has come under renewed pressure to reduce costs
and increase value. Locally, labour forms about 30% of the total local construction costs
(BCA, 2002). Efficient management and utilization, a productive and alert workforce can
and will lower costs and wastage, thus enhancing the firm’s competitiveness and quality
of work.
Wilkinson et al. (1986) describes the predominant labour-use system in the Singapore
labour subcontracting system has been proven to be workable due to the existence of
many trades in construction, some of which are only needed for a short duration on a
each trade to one subcontractor known as ‘kepala’ (Wong, 1990). The main contractor
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supplies all materials, machinery and safety equipment, technical supervision and general
site and head office management and assumes contractual responsibility whereas the
subcontractor is responsible for the recruitment, payment to and control of workers, and
in certain trades, the supply of small tools. Sometimes, when the ‘kepala’ is engaged in
too many projects, he will further sub-let his work to another ‘kepala’ and earn a
percentage of profit on the work while remaining accountable to the main contractor for
In comparison to the direct labour system, the ‘kepala’ system is relatively easier and less
costly to manage. ‘Kepalas’ are most commonly paid as per work done, though some are
still paid on a man-day basis. Fortnightly, upon assessment by the quantity surveyor or
foreman of the work carried out, each ‘kepala’ is paid the total amount due less retention
and previous progress payment, if any. In any case of payment by man-days, the total
man-days recorded on site during the period are the basis for assessment (Wong, 1997).
The ‘kepala’ system has been the subject of blame for many ills in the construction
industry such as high wastage, poor workmanship, poor workers’ attitude and high
number of accidents. As the main contractors supply materials, ‘kepalas’ utilize them in
the easiest, least time-consuming and often uneconomic manner (Choo, 1986). Odd
pieces that could still be used are simply discarded and have to be disposed of at extra
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4.8.2 Reasons for use
Employing a few ‘kepalas’ for the work on site is not uncommon for most of the big
contractors. Debrah and Ofori (1997) have established the rationale behind the use of this
system. One of the rationales is that the system provides flexibility for the main
As ‘kepalas’ are usually paid based on the quantity of work done, the risk of completing
the work at hand, working overtime and getting more workers to complete the work on
time is partially transferred to the ‘kepalas’. As such, the main contractors view this as an
Although the ‘kepala’ system has various benefits, there are also drawbacks inherent in
the system that are detrimental to the construction industry as a whole. Ofori (1997)
1. wastage of materials as the kepala’s workers are most concerned with the
quickest, not necessarily the most efficient methods. Ling and Teo (2001)
of concrete;
workers from site to site to achieve the best return from the expenditure on
them;
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3. improper usage of the main contractor’s equipment by the kepala’s
workers;
and
5. workers do not enjoy permanent employment; they also do not receive any
It can be seen that both the drawbacks and benefits preoccupy the different players of the
industry. On one hand, with no better alternatives, the ‘kepala’ system is beneficial to the
main contractors; on the other, looking at the industry as a whole, the above drawbacks
highlight the main causes of the high wastage and low productivity in the industry.
From sections 3.8.2 and 3.8.3, it has been identified that the kepala system has a problem
of employing unskilled workers who contribute to the amount of waste generated on site
(Yeong, 1998). Figure 4.3 shows the four possible causes of construction waste
generation that can be controlled if problems related to the kepala system are addressed.
Figure 4.3 depicts the four main causes of construction waste from the perspective of the
main contractors. The four main causes of construction waste generation (X) are:
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Refer to file name: Figures.PDF for Figure 4.3 Factors affecting construction
waste generation
The wasteful practice of subcontractors stems from the fact that subcontractors lack the
proper training to engage in less wasteful practices and the development of more efficient
and convenient ways of dealing with waste. Misconception of waste and lack of
appreciation for the value of materials gives rise to wasteful practice among
were driven by pragmatism, with low residual values being attributed to materials left
over from construction activity (Lingard et al., 2004). Lingard et al. (2004) stressed that
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more information to all employees about practical aspects of waste management, and for
Generally subcontractors felt that there were few benefits from taking the trouble to reuse
Often, the main contractor supplies construction material. Therefore, if the subcontractors
adopt a wasteful practice (AA), there would likely be an increase in construction waste
diminished this would lead to a lower generation of construction waste. Thus a positive
relationship exists between wasteful practice and construction waste generation (z36).
Rework tends to be regarded as part of the construction process and is one of the main
causes of wastage of materials on construction projects (Love and Smith, 2003). The
incidence of rework increases the likelihood of project time and cost overruns, and
Love et al. (2002) found that contractors considered a portion of rework costs as
On the other hand, if subcontractors are trained to avoid rework, the level of waste on site
can be minimized (Love et al., 2002). There is therefore a positive relationship (z37)
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4.9.3 Efficient usage of construction materials by subcontractors
waste generation on site (Ofori and Debrah, 1998). Skilled labour in the Singapore
(‘kepalas’) who employ a large pool of unskilled labour. The unskilled workers tend to
The construction industry must seek to reduce wastage, especially when much of it is
2003a). The labour subcontractors on which the Singapore construction firms depend
have no responsibility for purchasing materials. Their main concern is producing work of
reasonable standard and complete the maximum quantity of construction work within the
shortest time possible; they are not interested in finding or adopting the most efficient
way of using materials to produce their output. As such, they are unlikely to concern
themselves with new working methods that reduce waste (Ofori, 1997).
availability of this large pool of cheap unskilled labor has contributed to not only poor
construction productivity but also high levels of wastage. Poor workmanship and the
incorrect use of tools also result in a need for much remedial works and operational
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Ofori (2004) stressed that subcontractors play an important role in determining the degree
waste generation (X). This results in a negative link between efficient usage of
is no integration and coordination of team players when they actually carry out their work
(Wong, 2003). Co-ordination and integration mechanisms, though tightly intertwined and
the impact of managerial levers on logistical processes across the supply network
the decision-making process to select the most appropriate action that needs to be
performed from a set of alternative solutions (Forza et al., 2000). Integration mechanisms
can help them define to what extent such action/ interventions should pass through
In this study, team players are defined as the main contractors, the subcontractors and the
suppliers. Although in construction, consultants are often regarded as one of the team
players, they are excluded from the model due to the scope of this research. It is
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important to note that greater integration and coordination of team players in relation to
site (Lingard et al., 2001). Likewise if there is an increase in the integration and
coordination of team players, construction waste generation would decrease. This gives
rise to a negative relationship (z39) between integration and coordination of team players
4.10 Conclusion
the high volatility of the labour-intensive construction industry. The adoption of the
Flexible Firm Model allows subcontractors to be used more efficiently. The employment
of ‘Kepalas’ results in having an unskilled pool of labour on site (see section 4.8) chances
are that there would be lower productivity and an overall increase in construction waste
generation on site (Yeong, 1998). With this in mind, four causes of construction waste
generation were developed from this particular controllable factor (see Figure 4.3).
The most common employment practice is the ‘kepala system. The flexible supply of
labour demands. However, the system is problematic as the subcontractors’ workmen are
low-skilled and they are often inefficient in the usage of construction materials. Hence
high levels of wastage and low productivity occur. Four causes of construction waste
generation were developed from the controllable factors that cause waste generation (see
Figure 4.3).
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