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The Role of Monitoring and Evaluation in Construction Project Management

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DOI: 10.1007/978-3-319-73888-8_89

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 The Role of Monitoring and Evaluation
in Construction Project Management

Tengan Callistus1,2(&) and Aigbavboa Clinton1

1
Faculty of Engineering, and the Built Environment, Sustainable Human
Settlement and Construction Research Centre, University of Johannesburg,
Johannesburg, South Africa
callyclarke@gmail.com
2
Department of Building Technology, Bolgatanga Polytechnic,
Sumbrungu, Ghana

Abstract. This paper seeks to give meaning to the monitoring and evaluation
practice in construction project delivery. The practice of monitoring and eval-
uation in the building and construction industry appears to be side-lined whereas
other project management areas are given much attention in project delivery.
Hence resulting in the neglect and the less attention given to the monitoring and
evaluation of the entire project implementation process to ensure the successful
completion of projects. The study adopts an extensive desk review approach to
explain the role of monitoring and evaluation throughout the life cycle of project
delivery. The study revealed that monitoring and evaluation is the only project
activity which begins with the initiation of the project until project closure.
Some project scope requires monitoring and evaluation to be practised beyond
project implementation to ascertain the impact of the implemented project on
beneficiaries and end users. The study concludes that effective M&E plays a
critical role in construction project implementation given the needed attention by
the project implementors/team by providing adequate resources, technical
capacity building and providing a conducive project environment and the
involvement and participation of stakeholder in M&E will see project perfor-
mance improved.

Keywords: Benefits
Challenges
Construction
Monitoring and evaluation

Project management

1 Introduction

Undoubtedly, numerous infrastructure projects initiated by most third world countries

have failed owing to several reasons. Notable among these reasons for the failure of
projects include poor planning of the project implementation process and the effective
monitoring and evaluation of projects [1]. IUCN [2] asserts that a poorly planned
project is difficult to monitor and evaluate effectively. Similarly, a well-planned project
cannot deliver the desired project outcome but for the compliment of monitoring and
evaluation [3]. To ensure therefore that projects are implemented successfully to create
the needed job opportunities, provide the needed health, educational and economic
infrastructure, satisfaction of stakeholders, value for money, achieve project quality,
© Springer International Publishing AG 2018
W. Karwowski and T. Ahram (eds.), Intelligent Human Systems Integration,
Advances in Intelligent Systems and Computing 722,
https://doi.org/10.1007/978-3-319-73888-8_89
572 T. Callistus and A. Clinton

budget, and schedule and to contributes to the socio-economic development of nations,

M&E must be appreciated and implemented holistically throughout the life cycle of
project delivery.
According to [4] the influence of monitoring and evaluation on project success does
not correlate with the practice of M&E on projects. Thus little attention has been given
to monitoring and evaluation as a management practice regardless of the plethora of
evidence of the contribution of M&E in project implementation. Contrary, M&E is
intermittently undertaken to fulfil donor agency requirement [2, 4]. The poor under-
standing of the role of the two management functions; “Monitoring” and “Evaluation”
can be blamed for the poor performance of projects in developing nations [4]. Also, due
to the application of monitoring and evaluation in several sectors of business, the
understanding of the function and role of M&E in construction project management is
sometimes misunderstood. Given this, the study through a review of literature from
relevant databases explains the role of monitoring and evaluation in construction
project management. This is achieved under four major sectional reviews; what is
construction project management, understanding monitoring and evaluation, the ben-
efits of construction project monitoring and evaluation and finally the challenges in
construction project monitoring and evaluation.

2 What Is Construction Project Management?

The understanding of what construction project management entails will help to

appreciate the environment in which monitoring and evaluation thrive. Maksimović,
[5] defines construction as the sequence of preparing and forming buildings and
building systems. He further mentions that the construction sequence begins with
planning, design, and financing which continues until the project is ready for occu-
pancy. Similarly, he asserts that construction project management is the overall plan-
ning, coordination, and control of a construction process from beginning to completion
[5]. The aim of the planning, coordination and controlling of the process of con-
struction is to achieve design and client requirements of a functional and economic
viable project. The Project management institute [6], also defines project management
(PM) as the “application of knowledge, skills, tools, and techniques to project activities
to meet the project requirements”.
Figure 1, illustrates the five main categories of forty-seven logically grouped PM
processes; initiating, planning, execution, monitoring and control and the closing
process group. PM is therefore successful through the integration of all PM processes
in the life cycle of the project [6].
From Fig. 1, whiles the initiating and planning processes for a project begins the
project life cycle, they are concluded before the closure of the entire project. The
closing process of the project also begins at a later stage of project implementation. On
the other hand, both the monitoring and controlling and the project implementation
processes of PM begin the project and closes with the project. This suggests that the
monitoring and controlling process is fundamental in the entire life of the project to
ensure the successful implementation of the project. Similarly, monitoring and evalu-
ation are central to the management of projects if performance is to be achieved [2].
 The Role of Monitoring and Evaluation in Construction Project Management 573

Fig. 1. Project management processes in the project life cycle: Source [6, 7]

Fig. 2. Management function and monitoring and evaluation. Source [2]

Figure 2 illustrates the significant role of monitoring and evaluation during project
delivery. Hence the need to understand the role of M&E in the construction project
management.
Initiating and planning project requires M&E to ensure the right needs of clients
(project objects) are outlined and incorporated in the project while the needed resources
for the project are planned. Execution and implementation of the project imply the
translation of design into physical structures through several construction phases. As a
project management tool to ensure value for money and achieve quality, cost and
574 T. Callistus and A. Clinton

schedule and performance and satisfaction, M&E contrast actual progress with estab-
lished project objectives. Project resources (material, human and financial) are closely
monitored and evaluated to ensure effective resource utilisation and project account-
ability. The contrast of progress information serves as lessons for decisions to be made
on the project or for future project implementation.
Project closure is the last process before projects are handed over for occupation by
client or users. It may also serve as a termination of failed projects [8]. The overall
success or failure of the project is reported to donors or clients. To deliver effective
project closure, that is to increase project closing efficiency, secure resource spending,
and ensure project acceptance [8] requires a systematic process hence the need to
monitor the process.

2.1 Understanding Monitoring and Evaluation

In comparing monitoring and evaluation (M&E) definitions, it is evident that they have
distinct functions and roles to play in the life cycle of project delivery, yet comple-
mentary. Monitoring gives information on the progress of work at any given time (and
overtime) relative to the planned or desired targets and outcomes, which is descriptive
in intent [9]. Evaluation, on the other hand, gives evidence of the extent to which
targets and outcomes are being achieved and it mainly seeks to address issues of
causality. Kusek and Rist [9] further explained that evaluation is a complement to
monitoring in that when a monitoring system sends signals that the efforts are going off
track (for example, if progress towards target is lagging and that project duration will
not be achieved), then good evaluative information can help address the major issues
causing the delays.
In construction project management studies, several studies refer to “monitoring”
and “control” rather than “monitoring” and “evaluation” [10]. However, it considers
the similar description of their roles and functions in project management as a process
of tracking, reviewing and regulating progress to achieve performance objectives [11].
Monitoring and evaluation are also be seen in an economic sense as a study of human
behaviour in the process of using resources to attain developmental goals. The com-
bined effort of both monitoring and evaluation seek to guarantee efficiency and
effective utilisation of resources and processes in the project life cycle towards the
achievement of successful project delivery. Monitoring and evaluation have also been
view in two main perspectives; that is the classical/traditional view and the modern
view [12]. Tache [12] further describes the traditional (classical) view to acknowledges
a distinctive nature of the two management functions whereas the modern view of
M&E is one of an intimate management function. Further, the classical view of M&E
limits monitoring to the collection of information on inputs and output with evaluation
taking place once or twice during the implementation of the project. Monitoring and
evaluation also focused on assessing the efficiency of projects and focussed mostly on
project objectives and budget [12]. Nonetheless, the classical or traditional approach
did not afford stakeholders and project managers the opportunity to appreciate the
underlying reasons for the success or failure of the project and this is the major strength
of the modern approach to monitoring and evaluation [9].
 The Role of Monitoring and Evaluation in Construction Project Management 575

Contrary, the modern view of M&E acknowledges monitoring and evaluation as an

inseparable management function [12]. This means that the monitoring function will
not be complete in measuring performance until the monitored information has been
evaluated to establish the extent of success or failure during project implementation.
Also, the modern view of M&E considers a broader view of the practice and the
approach to M&E is a closely related. Monitoring and evaluation are seen to focussing
on all components of the project such as activities, budget, results, risk and objectives
etc. [12]. [13] cited by [14] recognises the distinct functions of monitoring and eval-
uation whiles admitting that their relationship cannot be overemphasised.
Scholars like [15] indicate two reasons why monitoring and evaluation are regarded
as two distinct functions as the failure of monitoring and evaluation to come up with
useful and cost-effective information regarding decision making due to the lack of trust
in collecting accurate data and failure to process and analyse same. Secondly, moni-
toring and evaluation were concerned with responding to planning failures rather than
the conventional managerial ineffectiveness and inefficient implementation [15].
Hence, M&E is part of the similar process, which is being implemented in all the
phases of the project lifecycle and covers all the knowledge areas recognised in the
Project Management Body of Knowledge (PMBOK) published by the Project Man-
agement Institute [10].
Monitoring and evaluation of their functions have both complimentary roles and
also some differences. [9] outlines some significant complementary roles of monitoring
and evaluation in Table 1.

Table 1. Complementary roles of monitoring and evaluation

Monitoring
Clarifies program objectives
Links activities and their resources to
objectives
Translates objectives into performance
indicators and sets targets
Routinely collects data on these indicators,
compare actual results with targets.
Reports progress to managers and alerts
them to the problems
Source: [9]
Evaluation
Analyses why intended results were or were
not achieved
Assesses specific casual contributions of
activities to results
Examines implementation process
Explores unintended results
Provides lessons highlight significant
accomplishment or program potential and offer
recommendations for improvement

Monitoring and evaluation as having been acknowledged in this study as a practice

is undertaken throughout the entire lifecycle of the project. Various forms of M&E can,
therefore, be identified based on the time they occur in the project and focus on
assessment [9]. Whereas monitoring tends to focus on what is happening continuously,
evaluations on the other and is conducted at a specific time to assess how well it
happened (progress against program) and what difference or impact it made (PATH,
576 T. Callistus and A. Clinton

2011). Monitoring data is typically used by managers for ongoing project implemen-
tation, tracking outputs, budgets, compliance with procedures, etc. Evaluations may
also inform implementation (e.g. a mid-term evaluation), but they are less frequent and
examine larger changes (outcomes) that require more methodological rigour in anal-
ysis, such as the impact and relevance of an intervention [16].
In furtherance to the stated differences that exist between monitoring and evaluation
as discussed, Table 2 presents a summary of the differences between M&E. The
identified difference between Monitoring and Evaluation is based on some critical
questions to explain the major differences between the two management functions.

Table 2. Differences between monitoring and evaluation

Question Monitoring Evaluation
When is it Continuously-throughout the life of Occasionally-before
done? the project/program implementation, Mid-term, at the
end or beyond the project/program
period
What is Efficiency-use of inputs, activities, Effectiveness, longer-term impact
measured? outputs, assumptions and sustainability- achievement of
purpose and goal and unplanned
change
Who is Staff within the agency (internal staff) In most cases, external bodies or
involved? agencies are engaged in the
evaluation
Sources of Internal documents, e.g. monthly or Internal and external documents, e.g.
Information quarterly reports, work and travel consultant’s reports, annual reports,
logs, minutes of meetings national statistics
Who uses Managers and project/program staff Managers, staff, funding agency
the results? (e.g. CDC) beneficiaries, other
agencies
How are To make minor changes To make major changes in policy,
results strategy and future work
used?
Source: Authors literature review

3 Benefit of Construction Project Monitoring and Evaluation

Studies have shown a plethora of benefits derived from the effective monitoring and
evaluation of projects [4, 11, 12]. Implementation of monitoring and evaluation seeks
to guarantee ultimate project success through the achievement of immediate project
outcomes such as conformity to standards and the achievement of budget and schedule
as well as long-term objectives such as fit for purpose (impact). The collective
achievement of all immediate outcomes indicates that monitoring and evaluation are
effective and therefore the success of the project is achieved [17–19]. A study by [19]
revealed that conformity to project specification (quality) would be achieved when
projects are adequately monitored and evaluated. The study further accentuates the
 The Role of Monitoring and Evaluation in Construction Project Management 577

achievement of projects within the approved budget (cost) and project duration (time)
when monitoring and evaluation are undertaken efficiently [19]. Further, organisational
human capacity and that of stakeholders are developed through effective monitoring
and evaluation along with effective communication [19].
Beyond achieving direct project objectives such cost, time, and quality, organisa-
tions are afforded the opportunity to learn (organisational learning) from previous
practices and activities to help improve current and future projects implementation and
better decision making [20]. Donor agencies and project financiers are satisfied with the
accountability level of projects given an effective monitoring and evaluation practice to
ensure future interest in funding development projects by donors. Contractors are
guided through the project implementation process which guarantees the maximum
performance of contractors. An effective project monitoring and evaluation practice
ensure a healthy project implementation environment where all stakeholders are well
represented on the project and given the opportunity to contribute to the project. Also,
scarce project resources are committed to judicious use. A greater benefit of efficiently
monitoring and evaluation is the assurance that project activities are done right the first
time to eliminate rework (which is a likely contributor to increased project budget and
extended project duration) arising from design and construction errors.
Monitoring and evaluation activities improve the communication between different
stakeholders. This affords stakeholders better understanding of implementation issues
regarding all aspects of the project. To make communication effective, a constructive
environment for exchange and discussion is essential. Clear and transparent commu-
nication mechanisms such as regular meetings, workshops, reporting, and information
sharing via the internet or printed media should also be established. It can therefore be
concluded that, the indicators of a successful project such as achieved project time,
conformity to standards, achieving project cost, stakeholder satisfaction, contractor
performance, Health & Safety, Value for Money, environmental performance, end-user
satisfaction, client satisfaction, fitness for purpose are achieved through the effective
implementation of monitoring and evaluation of projects.

4 Challenges of Construction Project Monitoring

and Evaluation

Monitoring and evaluation are challenged on many fronts. This section discusses M&E
challenges under three broad categories; technical level, organizational level, and
project level challenges.

4.1 Organizational Level Challenges

There exist several challenges attributed to nature, and operation of the organisation.
Cameron [15] discusses the lack of M&E units within the organisation as a major
challenge for monitoring and evaluation of projects. Without an M&E unit, planning
responsibilities toward monitoring and evaluation of projects are rendered ineffective.
The need to strengthen the planning and implementation of M&E for efficient project
delivery is paramount. [21] identified weak institutional capacity to influence the
578 T. Callistus and A. Clinton

performance of M&E significantly; Lack of technical capacity, skills, and knowledge

among M&E staff for monitoring and evaluation process resulted in project failure from
the onset when they studied the barriers to M&E implementation in the Ghanaian
construction industry.
Also, unique skills and knowledge are required in planning and undertaking M&E,
hence the need for concerted continuous training on M&E for M&E team and staff.
[22] also laments about the seeming non-existence of monitoring and evaluation plans
or system integration during planning, budgeting, and infrastructure development. This
potentially puts monitoring and evaluation in disarray; no set indicators to measure
progress and impact and as such any level of performance is acceptable. [23] further
advanced that one major challenge observed at the managerial level of organisations
that impact the monitoring and evaluation of the project are the struggles for power
between M&E unit staff and general organisational structure for influence on projects is
said to pose a challenge in project monitoring and evaluation. This does not allow the
M&E unit the independence and self-sufficiency to deal with all setbacks in the M&E
of projects.
A significant attribute of effective monitoring and evaluation is its support for
decision making and organisational learning. Unfortunately, monitoring and evaluation
information and reports are poorly utilised to inform organisational planning process
and implementation of future projects in the Ghanaian construction industry [21].
Significant among the challenges to the adoption of the building information modelling
(BIM) technology in the UK is the lack of investment and poor demand for its use by
clients [24].

4.2 Project-Based Challenges

The successful implementation of monitoring and evaluation at the project level is
hinged on the effective planning for M&E at the management level. At the project
level, limited financial resources affect the M&E process negatively [15, 21, 22]. The
approaches adopted in collecting project information for decision making renders the
quality of data collected poor and inadequate for management to base their decision on
for future projects [21]. Stockman (2011) acknowledging the challenges in collecting
and analysing M&E data further reiterated the need for relevant information generated
through effective data collection and analysis to sure good management judgement on
M&E activities on the project. Communication during the M&E of projects is critical.
[25] links project success to communication between key stakeholders on the project.
Poor communication is further exacerbated with the insufficient information on project
design as well as the inconsistency of project information; drawings, specifications, and
bill of quantities available for the M&E.

4.3 Technical-Based Challenges

Technical challenges rendering the ineffectiveness of monitoring and evaluation of
projects are reviewed. According to [26, 27], the weak demand of evaluation utilisation
poses a challenge towards implementation. As has been noted in previous sections of
the different focus of monitoring and evaluation considering the specific needs of the
 The Role of Monitoring and Evaluation in Construction Project Management 579

project stakeholders, and donors who have generated several operational definitions
towards describing what M&E entails, poses the lack of comparable definitions as
opined by [28]. This has created different understanding for effective M&E imple-
mentation. Also, [29] asserts that various attempts made to classify evaluation methods
were aimed at simplifying the puzzling array of available methods however the
attempts have instead created confusion regarding the understanding of the evaluation
field. The challenge of weak linkage between planning and monitoring and evaluation
is reported by [30], and the weak legal and institutional frameworks for monitoring and
evaluation [31] cannot be overlooked.

Table 3. Categories of monitoring and evaluation challenges

Source Types of barriers
Technical Organisational Project
[30] Weak linkage
between planning
and monitoring
and evaluation
[31] Weak Legal and
institutional
frameworks
[29] Methodological
issues
[28] Lack of
comparable
definitions
Stockman Poor approach to data
(2011) collection and analysis
[26] Low rate or weak
demand of
evaluation
utilisation
[22] Seeming non-existence Limited financial resources
of monitoring and
evaluation plans in
planning, budgeting, and
infrastructure
development
[21] Weak institutional Limited financial
capacity; resources,
Poor utilisation of M&E Quality of data collected
information and reports
(continued)
580 T. Callistus and A. Clinton

Table 3. (continued)
Source Types of barriers
Technical Organisational Project
[25] Poor communication;
insufficient information on
project design as well as
the inconsistency of
project information;
drawings, specifications,
and bill of quantities
[23] Power struggles between
M&E unit or officers and
general organisational
structure
[27] Low rate or weak
demand of
evaluation
utilisation
[15] Lack of M&E units Limited financial resources
within the organisation
[24] Poor demand for M&E Poor or lack of Investment
in M&E
Source: Authors literature review

5 Conclusion and Recommendation

The role of monitoring and evaluation in project management has been demonstrated in
the foregone which suggested that the monitoring and controlling process of project
management is the only process that begins and ends in the project lifecycle. Also, an
understanding of monitoring and evaluation is done, whiles illustrating the comple-
mentary and differences between the two management functions. The benefits of
implementing M&E is also reviewed as well as the overarching challenges of M&E. In
sum, M&E is a critical management process to construction project delivery. Despite
the many numerous challenges encountered by M&E which includes the limited
financial resources for M&E, weak institutional capacity of M&E departments or team,
and the weak linkage between project planning and M&E, projects are completed to
quality, cost, schedule, health and safety regulations and to the satisfaction stakeholders
when M&E is implemented effectively.
It is recommended for project managers to consider, plan and implement M&E on
all projects undertaken from inception to completion. This will help reduce the risk of
re-work, which possibly would have resulted in the increase project cost and time.
Also, provision for M&E should be considered during budgeting and planning for key
service components of the project. Finally, the involvement of project stakeholders in
M&E, training and capacity development for M&E, and an enabling environment for
M&E will ensure effective M&E of projects.
 The Role of Monitoring and Evaluation in Construction Project Management 581

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