English
On this year’s Earth Day, President Tsai Ing-wen pledged to accelerate progress toward net-zero emissions by 2050 by investing in the research and development of emerging technologies such as hydrogen, geothermal, and other alternative green energy sources. As the President stated, Taiwan must undertake structural adjustments in order to join the global green supply chain, a goal that demands collaboration between the public and private sectors.
The Committee applauds the government’s commitment to achieving net-zero emissions by 2050. We offer to work with the government to identify and implement crucial adjustments in its delivery approaches and create sustainable public- private partnership (PPP) projects that will bring Taiwan the technologies and skills required to achieve this ambitious goal.
Any changes that support the net-zero emissions target will also help Taiwan complete its ambitious set of wide-ranging infrastructure projects (such as rail, power, and airports) with overlapping and demanding completion timelines. Taiwan’s planned infrastructure program, particularly its power generation projects, must be completed successfully if Taiwan is to maintain its economic growth. Recent power outages highlight the importance of delivering private and public power projects according to schedule to maintain confidence in the development sector.
This year’s White Paper contains several recommendations aimed at attracting more international engineering & construction (E&C) firms to assist Taiwan in completing its planned public and private mega-projects and introduce greater innovation to the E&C industry. While some suggestions from previous AmCham White Papers have made headway, a number of issues that could benefit from the support of ministerial-level agencies remain unresolved. We request that the government work with the Committee to form a task force to implement past and current suggestions to gain the scheduling, cost, safety, and quality benefits that would accrue from their adoption.
This year we offer four recommendations aimed at promoting public-private partnerships and enabling more flexible and efficient project delivery. Suggestion 4 – to create more balanced terms and conditions in the government’s model contracts for public projects – has been raised in previous White Papers, and we believe its full adoption would encourage the participation of more multinational E&C firms in Taiwan’s public-project procurements.
The Committee prides itself on being one of Taiwan’s best partners in fostering economic development over the past decade. With such a long commitment, we strongly believe that strengthened cooperation between the Committee and relevant government agencies will help Taiwan not only build a green supply chain but also to deliver its ambitious set of infrastructure programs and ensure Taiwan’s continued social and economic prosperity.
Suggestion 1: Adopt a multi-pronged approach to achieving the 2050 net-zero goal.
The Committee agrees with the President that neither the government nor the private sector alone can enable Taiwan to achieve its 2050 net-zero goal and, more broadly, its wide- ranging planned infrastructure projects. The Committee would like to offer its cooperation and share its technical expertise to support Taiwan’s infrastructure development and greenhouse gas emission reduction goals. To strengthen the partnership between the Taiwan government and the private sector, the Committee makes the following recommendations:
1.1 Meet regularly with AmCham’s Infrastructure and Engineering Committee. Through more frequent engagement with the Committee, government agencies responsible for the 2050 net-zero roadmap and delivery of critical energy-related infrastructure projects would benefit from the members’ international technical expertise. Such engagement can provide the government with greater awareness of relevant carbon capture and reduction technologies and recent engineering and construction advancements, thus enabling the government to develop more realistic implementation timelines and improved policies in these areas. The Committee hopes to have such meetings with agencies that facilitate inter-ministerial efforts, such as the National Development Council, which oversees the 2050 net-zero roadmap policy.
1.2 Introduce incentives that reward R&D, innovation, and risk-taking. Incentives should be applicable to both private and public sectors – particularly state-owned enterprises, which are responsible for a large share of carbon emissions and mega-projects – to drive adoption of innovation and methods that enhance project delivery efficiency and quality. Such incentives could be linked to schedule or safety-related achievements. For instance, the governing agency could provide Key Performance Indicators (KPIs) for contractors that complete projects ahead of schedule or fulfill work safety without Lost Time Injuries (LTIs) or fatalities. KPIs are used to encourage innovation by providing incentives when defined hurdles are overcome. The current contract environment is one of a “stick-only” approach, in which the contractor or developer bears all the risk with no potential upsides. Using KPIs allows a “carrot and stick” approach, which is typical in the international market and encourages innovation.
The Committee also recommends that the government foster a culture that encourages public servants to embrace innovation. Most procurement entities are hesitant to try a new approach in the project procurement or delivery phase due to concerns that such an approach, if deemed unsuccessful, would result in a demotion for project managers.
1.3 Create a sustainable environment that fosters investment in decarbonization while ensuring sufficient and stable energy supply. Establishing market structures that value energy, flexibility, and dependable generating capacity will encourage an optimal mix of complementary technologies, provide energy security, and achieve the greatest carbon reductions in an economical and practical manner. While reducing carbon emissions is critical, the government must also ensure that energy-related projects are completed on time to provide Taiwan with reliable and cost-effective electricity during its green transition.
1.4 Encourage greater private sector participation through promotion of the Private Participation in Infrastructure Projects Act (PPIP Act). The Committee suggests that the Executive Yuan implement cross-ministerial efforts to adopt provisions of the PPIP Act for all renewable energy projects and expedite the installation of offshore
wind and solar energy facilities. We further recommend that the government work with the Committee to improve cooperation with the private sector through PPPs, including reviewing the PPIP Act to identify potential amendments that would allow more efficient implementation of such partnerships.
Suggestion 2: Actively encourage greater participation by international E&C contractors to promote economic competitiveness and technological advancement.
The government is still a long way from realizing its original 50/30/20 energy plan, which called for an energy generation output of 50% natural gas and 20% renewables by 2025. In March this year, natural gas and renewables accounted for approximately 30% and 6% of total energy generation, respectively, according to the Taiwan Power Co. As the local construction market is already overburdened, further participation of international E&C firms would the accelerate progress and improve the achievement of the 50/30/20 energy plan.
The global construction industry has advanced significantly in recent years and continues to do so as higher- value engineering design processes and advanced construction methodologies are introduced. Regrettably, Taiwan’s domestic E&C industry has failed to benefit from these advancements, suffering instead from stagnant technological advancement and a reliance on outdated project delivery methods. Low project budgets, the use of “Lowest Price” as a major bidding selection method, the issuance of tenders only in Chinese, and onerous contract terms (which are mainly punitive and contain no upside or revenue potential for the contractor) are all factors that discourage participation by international E&C contractors and minimize local competition. As a result, local companies have little incentive to innovate their design methods and modernize their construction procedures.
The Taiwan government has, through modest reforms to the Construction Act and the Government Procurement Act (and its Enforcement Rules), alleviated some of the hurdles that international E&C firms face when trying to enter the Taiwan market. However, these changes have primarily affected initiatives in the public sector. Little has been done to encourage participation in private-sector projects, which are critical to Taiwan’s energy transformation and other essential infrastructure projects.
Numerous non-tariff barriers in the Taiwan market deter E&C contractors from participating, many of which have been identified in previous White Papers. Amending model contract terms to align with international market practices, issuing requests for proposals in both English and Chinese, and allowing alternative methodology proposals during the tendering cycle are examples of ways to address barriers to entry.
The Committee offers its assistance to the Taiwan government in identifying and implementing measures to encourage more international engagement in the local market, allowing Taiwan to benefit from worldwide E&C methods and technologies.
Suggestion 3: Apply public-private partnerships to new wharf development and ensure flexibility of port operations.
The government has set a target of 5.7GW of offshore wind power (OWP) capacity by 2025 and 20.5GW capacity by 2035 as steps toward achieving its energy transition goals. In part due to COVID-19, the initiative is behind schedule. Furthermore, due to a lack of available ports and wharfs, the existing facilities are heavily congested, a problem that must be addressed in order to accelerate the pace of construction. With the benefit of incentives included in the PPIP Act when it was passed in 2000 to encourage private companies to invest in public infrastructure, private investment could finance the construction of the port and wharf facilities required to meet OWP development demands. Leveraging private investment can often mobilize additional sources of finance and deliver public infrastructure in a safe and efficient manner in terms of cost, schedule, and quality.
The government plans to build additional wharfs in accordance with its project OWP construction plan. However, bureaucratic budgeting and outsourcing procedures and stringent construction requirements have restrained the progress of ongoing construction and delayed the private OWP development. The Committee recommends that the Executive Yuan formulate standardized processes and measures for the Port Authority to use in the planned construction of Wharfs 37 and 38 in the Port of Taichung. Furthermore, port operation flexibility and a complete quayside facility will provide Taiwan’s marine operations with a competitive edge. Currently, the time limit for port entry and wind turbine generator (WTG) component onshore transportation extends the operation lead time and cost.
With the aim of amplifying the potential benefits of PPPs, as well as increasing flexibility, the Committee suggests the following:
- Expedite the formulation of standardized processes and measures for the Port Authority to follow in the planned construction of Wharfs 37 and 38 in the Port of Taichung.
- Allow 24/7 port operations in line with international practices rather than the current time limits. WTG component transportation, for example, is currently limited to between six and eight hours per night at Taichung Port, escalating traffic congestion.
- Establish a complete bunker facility at the quayside and provide enough fuel barges or supply ships to allow vessels to refuel at the wind farm to improve project operation efficiency.
- Allow offshore custom clearance to avoid unnecessary and redundant loading and unloading operations to create a safer port environment.
Suggestion 4: Provide fairer and more balanced model contract terms and greater flexibility in the tendering process.
In previous White Papers, the Committee requested the Taiwan government align its model contract terms with international standards to create fair and balanced terms and conditions for the industry. Creating a healthy contractual environment benefits international and Taiwanese contractors equally and fosters a more sustainable commercial arrangement between the owner and contractor, as well as the various suppliers and subcontractors.
Given the government’s aspirations to promote a broad transition to higher levels of technology, the Committee hopes to work with the Public Construction Commission (PCC) and other relevant government agencies to attract more international E&C contractors to participate in public tenders. Aligning the model contracts with international practice is critical to achieving this objective.
In addition, the Committee has previously suggested amendments to the tendering process, such as allowing alternative tenders to encourage greater innovation by using “Most Advantageous Tender” rather than “Lowest Price” as a preferred selection process for critical projects. International firms currently feel discouraged from participating in Taiwan’s public tenders and sharing innovations gained abroad due to misalignment with international procurement practices and the inclusion of unfair terms, such as unfavorable indemnification terms, international arbitration, and lack of a fair changes clause. This is unfortunate considering Taiwan’s need for more participation by international E&C contractors to help complete its ambitious, forward-looking infrastructure and energy programs.
The Committee offers to collaborate with the PCC and other government agencies to identify and implement past and current ideas related to this recommendation. Some preliminary ideas are listed below:
1. Create a healthy commercial environment for firms participating in public tenders. Current model contracts contain some provisions that do not reflect a fair and balanced contractual approach. One example is the inclusion of Article 227, paragraph 2 of the Civil Code in the model contracts, as explained in the 2021 White Paper. It is the Committee’s view that this reference made under the “Rights and Liability” clause should be removed. The Committee welcomes the PCC’s amendment to the Model Contract for Technical Service Agreements, which incorporates this suggestion. We hope the same will be done for all model contracts, particularly the Model Contract for Construction Agreements, to align with typical practices in the international market.
2. Allow contractors to submit change notifications. As stated in previous White Papers, the government’s set of model contracts (except the one for technical service agreements) fails to include a provision enabling the contractor to request a contract adjustment due to changed conditions caused by external factors, although allowing the government procurement entity to call for such an adjustment from the contractor. This unilateral approach is unbalanced and contradicts international practices.
3. Implement the use of alternative methodology in the procurement process. In international procurements, it is common practice to allow international contractors to offer alternative methods while still meeting the project performance requirements. The current government tendering process, however, makes no provision for this procedure. Including alternative tenders allows Taiwan to benefit from new methods and knowledge amassed from projects delivered outside Taiwan, which have the potential to improve project cost, scheduling, safety, and quality.
Chinese
蔡英文總統在今（2022）年的地球日公開承諾將加速在2050年以前達到淨零排放的發展進程，並投入氫能、地熱等前瞻綠能的新興技術研發。誠如總統所提，台灣必須採取結構性的調整以加入全球綠能供應鏈，而要達到這個目標必須有公私部門的協力合作。
基礎建設與工程委員會欣見政府對於達成2050淨零排放的決心。我們願意與政府機關一起找到並實踐關鍵的調整以利透過公私協力（public-private partnership）的模式一起為台灣帶來能夠幫助達成目標的科技與技術。
任何能夠幫助台灣達到淨零碳排目標的改變，也勢必能幫助許多基礎建設項目（例如鐵路、電廠及機場）在重疊且緊迫的時間下達成目標。台灣目前的基礎建設計畫，特別是發電廠項目，都亟需盡速完工以利台灣確保目前的經濟成長。從今年的停電事件，我們也看到了國營與民營發電廠項目如期完工才能維持目前對於經濟發展的信心。
今年的白皮書提出的建議，包括希望能吸引更多國際工程設計與營建公司，協助台灣完成計畫中的公共與私人大型項目，並為此產業帶來更多創新的活水。雖然過去白皮書的部分建議已取得進展，仍有尚待跨部會支持的建議尚未獲得解決。我們期待政府機關能與委員會成立工作小組，來實踐過去與今年的白皮書建議，幫助使台灣能在工程的時程、成本、安全性與品質等方面受益。
今年本委員會提出四項建議，主要聚焦在促進公私部門協力，以及促進工程項目的彈性與效率。第四項建議為有關在政府契約範本中創建公平的條款原則，且本建議也已出現在過去數年的白皮書當中。我們相信，唯有完整採納此建議才更能鼓勵跨國工程營造公司參與台灣的公私採購。
本委員會成員很自豪在過去數十年在台灣不斷推動經濟成長，係台灣重要的合作夥伴。也因為長期以來的承諾，我們堅信深化商會與相關政府單位的合作，將能幫助台灣打造綠能供應鏈，並完成大規模的基礎建設計畫，確保台灣經濟的繁榮。
建議一：以多元的方式來達成2050淨零排放目標
本委員會同意總統所言，僅有公部門或私企業的力量不足以協助台灣達成2050淨零排放目標，甚至也無法獨立完成相關層面廣泛的基礎建設工程。委員會希冀能分享會員業者的技術專業，來支持台灣的基礎建設發展，以及達到淨零減碳的目標。為強化台灣政府與私企業的夥伴關係，本委員會之建議如下：
1.1 與台灣美國商會基礎建設與工程委員會進行固定交流
透過與委員會會員業者的頻繁交流，以及國際專業經驗的分享，主責2050淨零碳排政策以及關鍵能源相關的基礎建設項目的主管機關可從中獲益。這樣的交流也能幫助政府了解目前碳捕捉以及相關最新工程設計與營造的技術革新趨勢，進一步幫助政府完善相關政策、訂定更可行的時程。委員會期待能與主掌跨部會政務之機關交流，例如主責2025淨零碳排政策的國發會。
1.2 提出誘因以鼓勵研發、創新及承擔相應風險
相關誘因應當可用在公私部門，特別是排碳大戶的國營企業，鼓勵以創新方式提升專案項目的效率與品質。誘因並可與安全性相關的表現連結，例如政府機關可透過關鍵績效指標（KPI）鼓勵廠商提早完成項目，或在沒有損失工時傷害或職災死亡下，達到安全性的標準。
關鍵績效指標亦可鼓勵以創新方式解決問題。目前的契約架構僅有「懲罰」，即廠商或開發商必須承擔所有風險，沒有得到任何誘因。委員會建議可參考國際市場的作法，透過關鍵績效指標，同時提供「懲罰」以及「獎賞」，達到鼓勵創新的效果。
委員會期待政府能開創新的文化，讓公務人員亦能接納創新。許多採購的機關因害怕新做法失敗將影響職等，使其在採購期間對於實施新方式持保守態度。
1.3 打造永續的環境，有利投資減碳事業，以及確保充足及穩定供電
如市場可同時重視能源、彈性及穩定發電，將促進互補性技術的進步，提供能源安全，以及在經濟還有實務面上達到減碳最大化。減碳已成為當務之急，政府必須確保能源相關項目能即時完成，才能在這段能源轉型的進程中提供台灣可靠、性價比高的電力。
1.4 透過《促進民間參與公共建設法》鼓勵私企業參與
本委員會希冀行政院能透過跨部會的合作來推動《促進民間參與公共建設法》，以利再生能源以及其他離岸風電與太陽能的項目能加速裝置速度。我們更進一步建議，希望政府能與本委員會一起協力促成公私部門協力，並一同檢視法規，透過可能的修法推動更有效率的合作模式。
建議二：積極吸引更多國際工程設計與營造公司加入參與，以促進經濟競爭力和技術進步
距離政府達成2025年的能源政策目標，即燃氣50%、燃煤30％、再生能源20％的能源占比，台灣仍有相當一段路要走。根據台電今年三月的資料顯示，燃氣發電與再生能源各佔30%與6%的發電量。當前營建的市場對於承包商的需求已處於供不應求，更多國際的工程設計與營建公司的加入，將可望加速並完善達成上述的能源目標。
近年在國際上，建築行業取得了很大的進步，且由於引進了最先進的技術和設備，該產業持續發展。遺憾的是，台灣的工程設計與營造業並未能從以上的技術進步中受益，自身技術仍停滯不前，且仍以較陳舊的方式進行。此外，低成本、追求「最低標」的招標方式、僅有中文的招標文件，以及相當不利的合約條件（其中多半皆以懲罰性角度出發，鮮少提供對於廠商有利的部分)，均不利國際工程設計與營造商進入台灣本土環境，以及降低本地競爭力。這使台灣公司缺乏動力競爭或投資，及優化營造業流程。
台灣政府通過對《建築法》及《政府採購法》等法規之改革，在一定程度上減輕國外工程設計與營造商進入台灣所面臨的阻礙。然而，這些改革多少只在公營部分造成影響，政府在鼓勵國外工程設計與營造商進入私營項目部分的努力，仍尙嫌不足，且可能對於台灣能源轉型以及其他重要基礎建設工程帶來相當大的影響。
上述阻礙使國際工程設計與營造商對台灣市場裹足不前，許多問題也都在過往的白皮書中提過。本委員會建議，政府修改契約範本條件使其與國際市場標準接軌、在招標時使用中英文並陳及在投標過程中接納不同方案，協助降低國際公司進入台灣市場的門檻。
本委員會也希望與台灣政府合作，一起找出合宜的方法來鼓勵國際公司參與當地的項目，讓台灣能受益於國際工程設計與營造公司的技術與科技。
建議三：透過公私部門協力打造未來港口基礎建設，並增加港口作業的彈性
政府提出離岸風力裝置容量目標於2025年達5.7GW、2035年20.5GW以達能源轉型目的。受到新冠肺炎的影響，其相關工程已有所延宕。再者，產業正面臨塞港及碼頭不足問題，目前的基礎建設無法消化當下的需求。這項挑戰倘若沒有解決，將會影響目前工期的進程。台灣自2000年起施行《促進民間參與公共建設法》，實現「公私協力夥伴關係」，鼓勵民間企業投資興建公共建設，建造更符合需求之設施，有效多方投入資金，在有競爭力情況下降低成本，提供更優質公共服務，同時也可創造一個更安全、在成本、時程與品質上更有競爭力的環境。
政府機關目前欲自行投入碼頭興建工程，然而若按正常預算編列、發包設計、施工等程序實在緩不濟急，因此，本委員會建議行政院應盡速訂定特別辦法，以便港務單位處理台中港第37與38號碼頭的建設時能有所遵循。另外，彈性之港口作業及完善之港邊設施將提供台灣海事作業競爭力。
目前船舶進出港口與風機陸域物流作業限於特定時段進行，導致作業延宕及相關費用增加。
為了擴大公私部門協力帶來的效益、以及增加港口作業的彈性，本委員會提出建議如下:
3.1 盡速訂定特別辦法，以便港務單位處理台中港第37與38號碼頭的建設時能有所遵循。
3.2 允許港區24小時作業，接軌國際慣例。目前台中港風機陸域物流作業時間僅限每晚6-8小時，加重塞港的情況。
3.3 建置完善的港邊燃油補給設施，或提供足量之燃油駁船，駁船/補給船可以進行風場場域內加油，不需返港加油，提升工程作業效率。
3.4 允許海上清關作業方式，避免非必要性多次裝卸，使港邊作業更為安全。
建議四：修訂公共工程契約範本，使條款更加平衡及公平，並允許招標程序更有彈性
本委員會曾在過去的白皮書中，請求台灣政府將其契約條款與國際標準接軌，為工程設計業建立公平及平衡的條款。 建立健康的契約環境對於國際與台灣的工程設計及建築承包商皆有助益，也能促使業主和承包商、次級供應商和分包商之間建立更加永續的商務關係。
有鑑於台灣政府致力於技術升級轉型，本委員會希望與行政院公共工程委員會（工程會）及其他相關部會合作，吸引更多的國際工程設計及建築承包商參與公共工程招標案。為了實現此目標，使契約範本與國際慣例一致，至關重要。
本委員會曾建議修改招標程序，儘量採用最有利標而非最低價標為重點工程的評選方式，並允許以替代方案投標，以促進工程設計及建築業進一步的革新。與國際採購實務不一致的採購程序與不公平的契約條款，例如:不利的賠償責任、缺少公平的變更合約條款，不僅阻礙了國際工程設計及建築公司參與公共工程招標案，也阻礙其分享國外之創新經驗。考量到台灣需要更多國際工程設計及建築承包商之參與，以協助完成其宏觀的前瞻性基礎設施及能源計劃，這是有不利影響的。
本委員會希望能與工程會及相關部會一起討論並採行過去和現在的建議。本委員會提出初步的想法如下：
4.1 公共工程招標案之公司建立健康的商業環境契約範本中有些內容是不公平且責任過重的，將民法第227 條第 2 款納入契約範本即為一例，契約範本之「權利及責任」條款應刪除引用該條文。本委員會非常感謝工程會 於修訂技術服務契約範本時納入此建議；然而，我們希望所有的契約範本都能如此修訂，尤其是工程採購契約範本，才能與國際慣例接軌。
4.2 增訂允許承包商提交契約變更通知的條文契約範本條款應允許承包商提交變更通知。如同先前的白皮書所解釋，政府的契約範本（技術服務契約範本除外）沒有承包商得因（非承包商所能控制的其他事由所導致之）情況變化而請求調整契約之條款，但政府採購機關卻可要求承包商調整契約。此種僅允許單方面提出變更契約的做法既不衡平，也與國際慣例背道而馳。
4.3 在採購程序中採用替代方案允許國際承包商提供符合工程專案要求之替代方案，是
國際採購實務常見的作法。然而，目前政府採購招標程序並無允許此作法之規定。採納替代方案招標可使台灣及政府能從國外的工程專案中獲取經驗及創新工法而受益，經由國際工程設計及建築承包商與政府分享這些經驗，從而改善工程成本、進度、安全性及品質。
