Source · Select Committees · Public Accounts Committee
Recommendation 13
13
Accepted
Cost-plus Main Works Civils contracts are primary driver of HS2 programme cost increases.
Conclusion
HS2 Ltd told us more directly that 89% of the difference between the Departments’ 2020 estimate of £44.6 billion and now was about how the Main Works Civils contracts were manifesting. It said that the Government’s decision to let cost-plus contracts, with few incentives and penalties, had left HS2 Ltd without any real levers on contractors to do better in relation to schedule and costs. The Department then agreed that the Main Works Civils had been the principal driver of cost increase.28 In our May 2020 report we had noted how the revised commercial model with main civil contractors had left HS2 Ltd (and therefore the taxpayer) bearing more of the risk of cost increases. We had pointed to the corresponding need for HS2 Ltd to ensure that it had the right commercial skills to manage these arrangements, and for the Department to be able to oversee and challenge HS2 Ltd’s performance.29 HS2 Ltd told us that the decision to let cost-plus contracts had not itself made the costs increases inevitable, and that there was the key factor to consider of how well the company had managed those contracts, as well as just the form of those contracts.30 23 Transport Committee, Oral evidence: HS2: progress update, HC 85, Q 408 24 Qq 41, 55, 56 25 Qq 56, 58 26 Qq 83–85 27 Q 59 28 Qq 59, 60 29 Committee of Public Accounts: High Speed 2: Spring 2020 Update, 3rd Report of Session 2019–21, HC 84, 17 May 2020 30 Q 95 HS2 and Euston 13
Government Response Summary
The government agrees with the committee's observation and is taking specific steps to strengthen HS2 Ltd's leadership, including recruiting new Non-Executive Directors and a CEO, and implementing a plan to bear down on costs, reinforce cost control culture, and strengthen governance for Phase 1 delivery.
Government Response
Accepted
HM Government
Accepted
2.1 The government agrees with the Committee’s recommendation. Target implementation date: Spring and autumn 2024 2.2 HS2 Ltd’s leadership and its collective capability are critical to the success of HS2. The department commenced a recruitment exercise to identify new Non-Executive Directors in January 2024. Additionally, HS2 Ltd commenced a recruitment exercise to identify a new Chief Executive Officer in February 2024 and is also recruiting to a number of senior executive roles. 2.3 As noted in the Network North command paper of 4 October 2023, HS2 Ltd and the department are committed to: • bearing down on the costs of Phase 1 and only delivering what is essential; • embedding a singular focus on cost control in HS2 Ltd and its supply chain and being prepared to take difficult decisions on contracts, scope and benefits to hold to budget; • reinforcing the leadership of HS2 Ltd, under Sir Jon Thompson, to change the culture on cost control with challenge from the department, HM Treasury and the Infrastructure and Projects Authority; and • providing strengthened governance and control from the government whilst this reset is developed and delivered, with increased oversight and reduced delegation. 2.4 A plan has been developed by the department, HM Treasury and HS2 Ltd to implement the above commitments. The department will provide an update in its forthcoming six-monthly reports to Parliament. 2.5 HS2 Ltd and the department are working together and with the principal suppliers to ensure focus on cost-effective delivery of the remainder of the civil works. The department will provide an update on that work in forthcoming reports to Parliament, subject to commercially sensitive details.