RESOLVING CONSTRUCTION DISPUTES IN ASIA REPRINTED FROM:
CORPORATE DISPUTES MAGAZINE JUL-SEP 2016 ISSUE
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RESOLVING CONSTRUCTION DISPUTES IN ASIA
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PANEL EXPERTS Wendy MacLaughlin
Derek Nelson
Senior Vice President
Senior Vice President
Hill International (UK) Ltd.
Hill Construction Consultancy Pte. Ltd.
T: +44 7540 158 226
T: +65 9182 9350
E:
[email protected]
E:
[email protected]
Wendy MacLaughlin is a senior vice president at Hill International and co-head of International Expert Witness Services. She is a world-class programming expert, with over 20 years of experience in design, construction and planning on major infrastructure projects. Ms MacLaughlin is highly regarded by the barristers and solicitors she has worked with. She has experience as a party-appointed expert and has given evidence to arbitral tribunals on numerous occasions in London, Dubai, Australia and Stockholm.
Derek Nelson is a senior vice president at Hill International, based in Singapore. He has 35 years of construction industry experience and specialises in the identification and management of contract and commercial risks, the preparation, negotiation and settlement of claims for disruption, acceleration and prolongation and in the investigation, assessment and settlement of such claims presented by others. Mr Nelson is an accredited and certified testifying expert witness, accredited expert determiner and certified mediator.
Muhammad Ehsan Che Munaaim
Simon Longley
Senior Consultant
Senior Vice President
Hill International Consulting, Inc.
Hill International Consulting, Inc.
T: +971 56 729 0281
T: + 971 56 615 6437
E: muhammadehsanchemunaaim@hillintl.
E:
[email protected]
com Muhammed Ehsan Che Munaaim is a senior consultant at Hill International with more than 10 years’ experience in both industry and academia. His areas of expertise include claims analysis, contract administration, quantity surveying, and adjudication. He is also a (part-time) Teaching Fellow in Construction Management and Surveying at Heriot-Watt University Dubai, where he teaches claims, FIDIC contracts and dispute resolution in the MSc in Construction Project Management and MSc in Quantity Surveying programmes.
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Simon Longley is a senior vice president at Hill International, based in Dubai, United Arab Emirates. A chartered quantity surveyor and barrister, he has more than 30 years of experience in construction consulting with a focus on complex, infrastructure and energy megaprojects worldwide. Mr Longley specialises in the strategic leadership, turnaround and recovery of distressed projects, particularly with regard to contract and dispute management for dispute board and other tribunal proceedings.
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RESOLVING CONSTRUCTION DISPUTES IN ASIA
CD: How would you describe the construction dispute landscape in Asia? To what extent are these types of disputes becoming more prevalent in the region?
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significant engineering challenges which push the boundaries of our technical capabilities; this often means that more risks are being passed to contractors who usually lack the ability to deal with them effectively and efficiently. This breakdown results in delays and cost overruns, which, in turn,
MacLaughlin: I would describe the construction dispute landscape as changing. We are seeing
if not properly addressed, can escalate into multimillion dollar mega disputes.
an increasing number of Singapore International Arbitration Centre (SIAC) arbitrations, particularly
Nelson: The dispute landscape in Asia has
those arising from investment by Asian parties in
become much more stratified. A number of
resource and infrastructure projects in Australia.
jurisdictions either have, or intend to, introduce
We expect to see disputes referred to adjudication
statutory adjudication for construction payment
increase over the next few years, as well as NEC3
disputes that are seeing a significant reduction
arbitrations as that form of contract becomes
in parties arbitrating subcontractor-contractor
prevalent in the region.
payment disputes during and at the end of a project in those jurisdictions. There has been a significant
Munaaim: Yes, I agree. The construction dispute
rise in contractor-employer Construction Industry
landscape in Asia is changing rapidly. We are seeing
Payment and Adjudication Act (CIPAA) claims at final
bigger, more expensive and complex disputes
account stage in Malaysia, which is likely to impact
arising, which take much longer to resolve. I believe
numbers further in that jurisdiction. That said, with
the reason for this change is simple – construction
the significant increase in investment in, for example,
projects in Asia are growing, due to the continent’s
power and infrastructure projects across the region
sustained advancement and infrastructure initiatives,
drawing together multinational parties to deliver
and, as a consequence, these kinds of disputes are
technically complex and challenging projects often
being generated. Some developing Asian countries
in constrained timeframes, the number and value of
like Malaysia and Indonesia are spending huge
international arbitrations has increased significantly
sums of money on ambitious infrastructure projects
across the main centres in Asia. There has been
that contain huge contractual and delivery risks.
a marked increase in foreign contractors entering
The scale and complexity of these projects pose
certain markets and that is breaking the natural reticence of local contractors pursuing formal action
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for recovery. Additionally, large government linked companies and employer organisations are facing organisations which are less swayed by concerns over future opportunity and more focused on losses today. That has contributed to the increase in the number of large value international arbitrations across the region. Longley: The Asia market is picking up with more
CD: What are the main dispute resolution methods that are usually adopted in Asia and how are these generally applied to the construction sector? Can you highlight any recent, high-profile cases which demonstrate how these methods have been applied? MacLaughlin: In my experience, traditionally
large-scale and complex infrastructure, power and
negotiation has been effective enough to negate the
transportation projects being taken forward across
need for expensive dispute resolution processes. If
the region. Such developments, however, bring with
a dispute is referred to arbitration, the negotiation
them an increased level of claims and disputes, for a
process will often carry on in parallel with arbitration
number of reasons. Where project participants have
proceedings which often leads to the matter getting
insufficient capacity and experience of tendering
resolved before the substantive hearing, but at
for and delivering such projects, allied with multi-
a point in time where the parties have a better
national joint ventures as contracting parties, the
understanding of the merits of their respective
diversity of risks that need to be identified and
positions.
managed for a project to be successful multiply greatly. And if project staff on both sides are not
Munaaim: The trinity of dispute resolution in
experienced in the administration of complex
Asia is made up of, in ascending order, negotiation,
projects, issues can quickly escalate into claims
mediation and arbitration, based on recent
or disputes. When disputes do arise, project staff
construction projects in India and Malaysia. Here,
may have limited experience of dispute boards,
there still exists an ingrained culture of non-
arbitration or local courts to resolve disputes
confrontation between employers and contractors,
efficiently and effectively. So throughout the
and in most situations both parties want to negotiate
construction process there is a huge learning curve
to resolve their disputes amicably because they
to be had by project participants. The challenge is to
know how damaging disputes can be to ongoing
learn quickly to avoid claims and disputes.
business relationships. If negotiation fails, a neutral third-party mediator is used to facilitate their
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discussions to reach an amicable settlement.
in Singapore through Singapore Mediation Centre
Arbitration is only used as a last resort, once
(SMC) have increased by 120 percent between 2012
all non-confrontational avenues are exhausted.
and 2015. An international mediation centre (SIMC)
Although, I must say, the trend is slowly moving
was opened in November 2014 and introduced
toward confrontational dispute resolution methods, likely because of the large amounts of money at stake. Adjudication is also coming to the forefront, which will eventually be an intervening mechanism between mediation and arbitration.
“Traditionally negotiation has been effective enough to negate the need for expensive dispute resolution processes.”
Nelson: Negotiation is the natural first step to settlement. Understanding, presentation and substantiation of entitlement and the consequences of
Wendy MacLaughlin, Hill International (UK) Ltd.
those issues in terms of time and money is often poor, which does not aid consensus and
integrated arbitration-mediation-arbitration services
settlement. There is a marked increase in facilitated
in collaboration with SIAC, a model particularly
settlement through mediation, neutral evaluation
suited to Asian sensibilities and one that found
and expert determination on key issues. That can
favour with 78 percent of users of international
help parties get to a negotiated position. Access to
arbitration. The numbers of cases being referred
statutory adjudication in selected jurisdictions and to
to arbitration across the main centres in Asia
dispute adjudication or review boards more widely
over the last 10 years have increased significantly.
on large international projects can also act to focus
That seems reflective of the significant levels of
the parties in reaching agreement before referral. A
investment across Asia and the draw of international
recent survey showed that international arbitration
organisations now delivering large complex
remains the preferred final dispute resolution
projects in the region. Particularly significant are
mechanism for 90 percent of users. A particular
the number of China International Economic and
feature of dispute resolution in Asia is the use of
Trade Arbitration Commission (CIETAC) arbitrations
mediation, either on its own or the midst of other
in China and the numbers through Hong Kong
formal dispute resolution processes. Mediation cases
International Arbitration Centre (HKIAC), both of
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which peaked in 2008/2009 but have since found favour in particular with Russian organisations. Numbers through SIAC have shown a steady rise as it finds favour with parties contracting internationally. Longley: For the bigger projects the main dispute resolution mechanisms, often in tiered dispute
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CD: At the outset of a construction project, what considerations should be made with regard to potential future disputes? What components of the contract, such as pre-tender and post contract advice, risk assessments and delay analysis, should parties evaluate?
resolution procedures, are expert determination, dispute boards and arbitration. In addition, in certain jurisdictions, such as Malaysia and Singapore, there is statutory adjudication for payment disputes. Singapore is the centre of dispute resolution in the region for arbitration. In addition, Singapore has
“The construction industry is a fertile ground for disputes, given its unique characteristics.”
recently established an International Commercial Court. Dispute boards are the core feature of FIDIC-based contracts and will likely continue to grow in popularity and usage. However, unless experienced
Muhammad Ehsan Che Munaaim, Hill International Consulting, Inc.
DAB practitioners are appointed, there is the potential for poor decisions. In this regard,
MacLaughlin: The contractual dispute resolution
the Persero case, decided in the Singapore courts,
clause should suit the manner in which the parties
considered the issue of enforcement of a DAB
wish to deal with disputes that may arise during the
decision and ruled that there is an ‘inherent premise’
execution of the project. This could be using tiers
that a DAB decision can be enforced by a partial
of dispute resolution that may include any senior
award in arbitration, a ruling that has been subject
management meetings, early neutral evaluation,
to much comment and criticism by commentators in
the use of a project DRB, or a direct referral to
other jurisdictions.
arbitration or the courts. Pre-tender advice on those provisions is essential for the parties to understand
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the options available and to agree the process that
with any likely dispute that would arise under their
best suits how their organisation, both at project
contract.
and corporate levels, wishes to deal with disputes. In relation to delay, the parties should consider
Nelson: The practice of putting large
carefully the effect of any strict notice requirements
infrastructure projects out to 12 contractors to
and their ability to comply with these in the fast track
tender at a cost of over US$1m each is astonishingly
project environment, the appropriate level of project
wasteful. Two-stage selective tendering with a
controls on cost and schedule that will stand them
requirement for detailed planning, programming
in good stead in the event that the effect of a delay
and risk assessment up front would leverage
event has to be demonstrated for the purposes of
off the contractors’ expertise coupled with early
securing extensions of time.
contractor involvement to collaboratively identify principal constraints and issues together with their
Munaaim: The construction industry is a fertile
proposed solutions and management. Identifying
ground for disputes, given its unique characteristics.
those matters early and aligning the project
The best way to deal with future disputes is to
delivery across all parties to clearly manage those
prepare early, although sometimes at considerable
sensitivities would give transparency and assist in
initial cost. This, however, can save future cost and
the active resolution of the same before they have
time when disputes are eventually referred to for
the potential to generate potential future disputes.
formal resolution under the contract. Contractors
Ensuring that the contract structure is appropriate
should establish a contract and commercial
is a given. Applying a project oversight function,
department at the outset, which during construction,
whether through a DRB mechanism or a project
is responsible for monitoring potential events which
neutral function which regularly reviews issues as
may escalate into disputes, collating records and
the project progresses, and gives an independent
preparing documents for submission for resolution
opinion, or if necessary a decision, is an effective
under the contract. Employers should appoint a
approach to assisting the parties in addressing
contract administrator in the beginning whose main
matters when they arise.
role is to monitor events to prevent them from escalating into disputes during construction. Both
Longley: Large and complex projects are now
parties must also ensure that their dispute resolution
being undertaken in the region but the market in
provisions are appropriately drafted in accordance
some jurisdictions is presently not sophisticated or experienced enough to deal with them. Tender
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documents are sometimes incomplete or contain
and fully assess tenders from all aspects – technical,
errors and omissions. Employers may seek to have
commercial, contractual, legal, time, cost, and so on
contractors assume risks that should normally be
– as well as more specific issues, including cultural,
carried by the employer. Contractors often give
local legal customs and requirements, worker and
insufficient consideration to contract terms and
visa rules and regulations, importation requirements
conditions, sometimes leading to the failure to
and the like. However, in my experience, contractors
recognise the greater risk transfers, the introduction
frequently do not sufficiently consider and risk
of time-bars – or more usually reducing the time
assess all such issues, instead pricing the work
period for the giving of notice. We also see the
but leaving contractual considerations and dispute
introduction of complex procedural steps to become
resolution procedures way down the list of items to
entitled to time and or money, among other issues.
check and risk assess.
Therefore, a first step is for contractors to properly
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CD: Have any recent regulatory and legislative changes had an impact on dispute resolution practices within Asia’s construction sector?
interest in statutory adjudication, with a government consultation document issued recently. As for international arbitration, legislation was recently amended to permit foreign arbitrators and lawyers to enter Malaysia and participate in arbitral
Munaaim: Some interesting regulatory and
proceedings without a work permit. With its
legislative changes have recently taken place
common law tradition, low costs, geographical
in Asia with respect to dispute resolution. The
location and transportation links, Kuala Lumpur will
introduction of statutory adjudication in Malaysia
be an attractive alternative seat for international
by way of security of payment legislation has
arbitration. As for mediation, Singapore introduced
provided an avenue for swift and cost-effective
its IMC in 2014 to provide mediation services aimed
dispute resolution. Hong Kong has also shown
at resolving cross-border commercial disputes,
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which complements its international arbitration
spread to other institutions. A recent decision in
centre and increases its dispute resolution offerings
Singapore’s Court of Appeal, PT Perusahaan Gas
to international parties.
Negara (Persero) TBK vs. CRW Joint Operation, that a tribunal’s interim or partial award on a respondent’s
Nelson: The sea change legislation introduced
obligation to promptly pay the sums in a DAB
into Singapore and Malaysia, with interest being
decision under the FIDIC Conditions of Contract
expressed elsewhere, is statutory adjudication.
for Plant and Design-Build 1999 is immediately
After a slow start in Singapore, that has had the
enforceable under the Singapore International
effect of changing the local dispute landscape
Arbitration Act is set to have a marked impact on
in both Singapore and Malaysia with a marked
the dispute resolution process for construction and
increase in the numbers and value of disputes
infrastructure projects where FIDIC is the default
being referred. Established in January 2015, the
form in use. A claimant can seek enforcement
Singapore International Commercial Court, with 27
of the DAB decision through an interim arbitral
‘international judges’ on its bench, is hearing its
award pending final resolution of the merits of the
first case, which includes a construction dispute,
underlying dispute, which markedly reduces cash
between an Australian and an Indonesian party in
flow issues stemming from a potentially long and
Singapore. This is the first of its type and it will be
drawn-out arbitration. While the case is only binding
interesting to see how that develops. The ICC Court
in arbitrations seated in Singapore, the decision is
of Arbitration announced that it will publish the
likely to be persuasive elsewhere.
names of arbitrators and who the chairman is; that provides transparency and may affect who parties
Longley: Malaysia and Singapore now have
choose for their case. In addition, the ICC announced
statutory adjudication that addresses payment
that it will reduce the fees paid to tribunals that fail
disputes, and Singapore has recently established
to submit a draft award within three months of the
an International Commercial Court. This latter
last substantive hearing or post-hearing submission.
innovation could have far reaching effects if it
Tardy arbitrators may see their fees reduced from 5
proves successful in handing down speedy and
percent to 20 percent or higher, depending on the
authoritative rulings. International contracting parties
length of delay. There is no indication that decisions
desire certainty in the interpretation and application
on whether to reduce fees will be made public but
of provisions, such as contained in the FIDIC suite of
the policy does seek to address a particular issue
contracts, across jurisdictions. Because arbitration
for parties, an approach which is thought likely to
proceedings remain private, there is no corpus of
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decisions that provides contracting parties with the
may hamper its use. DRBs should be used in large
certainty they desire. If the International Commercial
construction projects and are ideally constituted
Court can fill this void, not only will contracting
at the start of the project in order for the panel
parties be able to enter into contracts with greater
to become accustomed to the characteristics
certainty as to the interpretation, application and
of the project and the parties involved. Early
effect of contract provisions, but the decisions
implementation allows parties to utilise the full
and awards handed down by dispute boards and
benefit of the DRB process.
arbitral panels will be also become more consistent.
CD: In your opinion, how effective are expert panels and dispute review boards (DRB) at resolving construction disputes in Asia? In what circumstances can a well-run DRB assist a construction project?
“The International Commercial Court could have far reaching effects if it proves successful in handing down speedy and authoritative rulings.”
Munaaim: The Asian manner of
Simon Longley, Hill International Consulting, Inc.
resolving disputes provides a perfect platform for the use of DRBs, a type of nonconfrontational dispute resolution. The Ertan
Nelson: DRBs, and similar third-party expert
Hydroelectric project is testament to that – 40
oversight, are very effective in providing guidance,
disputes were resolved at the DRB stage without
opinion or decisions that focus the parties and allow
further reference to arbitration. There is evidence
them to resolve issues early and remain focused on
to suggest that DRBs are gaining momentum and
the delivery of parties’ respective obligations. In light
are used in Asia, to some extent, especially in large
of the Singapore Court of Appeal’s decision in the
construction projects. However we have seen, in
Persero case concerning the enforcement of a DAB
some cases, parties still prefer domestic, standard
decision through an interim arbitral award, where
forms of contract that simply do not provide for the
that approach finds favour with other tribunals,
DRB as a mechanism of dispute resolution and this
that certainty has the potential to underscore DABs
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as a quick and interim dispute mechanism with enforcement teeth. Longley: In our experience, dispute boards are
CD: What general advice can you offer to parties embroiled in a construction dispute in Asia, in terms of managing the process and reaching a timely resolution?
very effective at resolving disputes finally, cheaply and quickly, often meaning contracting parties
MacLaughlin: Understand the merits of your
can implement decisions during the currency of a
dispute, the drivers of each of the parties’ business
contract – unlike in arbitration where awards often
decisions in relation to the dispute, and the strength
follow the completion of the project and therefore
of the records upon which you are reliant. These
cannot affect ongoing project progress. However,
are the key factors in my experience that will
such outcomes are critically dependent on the
influence how quickly a dispute can be resolved cost
parties being able to operate the DAB procedures
effectively.
effectively and, more importantly, the DAB members being experienced, qualified and competent to hand down decisions that parties’ recognise as being bona fide. Any shortcomings in these dependencies can impair the quality of DAB decisions and give rise to later arbitrations and court cases, such as in the Persero cases.
“Disputes are expensive and represent a major distraction from the party’s core businesses.”
Clearly, parties obtaining training, advice and support in DAB procedures and in appointing experienced and qualified DAB members would go a long way to addressing these sorts of concerns.
Derek Nelson, Hill Construction Consultancy Pte. Ltd.
Another factor worth bearing in mind is that effective dispute boards are also able to play a
Munaaim: Disputes can take months, if not years,
dispute avoidance role by giving opinions on issues
to be resolved, and it is to both parties’ benefit
that could otherwise become disputes.
to avoid disputes if possible. Clients should avoid going down the formal dispute resolution route,
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but this is not always possible. I think the involved
– either direct employment or consultant. Advice on
parties have to take a step back from the front line
dispute board members, procedures or other ADR
to be able to examine the situation objectively. They
mechanisms could also be provided, in addition to
should obtain advice from lawyers and construction
wider training, advisory and expert service offerings.
consultants to know where they stand contractually and commercially, so that they will have an idea of the possible outcomes of their dispute resolution. From there, they can manage their expectations, participate knowledgeably in the process, and work
CD: How do you envisage the outlook for construction disputes in Asia? What trends and developments do you expect to see in the months and years ahead?
toward the resolution. Munaaim: I predict that multi-million dollar Nelson: Disputes are expensive and represent a
disputes will continue to rise. Given its economic
major distraction from the party’s core businesses.
diversification and social infrastructure, many more
Seeking an early independent opinion or evaluation
megaprojects will be introduced in Asia. Existing and
can be invaluable. Parties may find themselves in
future megaprojects will generate bigger and more
dispute for years, expending an inordinate amount
expensive and complex disputes that simply will
of time, effort and money trying to resolve the issues
not allow parties to negotiate, and because of this,
between them, which in effect only entrenches their
I foresee that international arbitration will become
positions. In such cases, an independent review
a common feature in dispute resolution in Asia,
might reveal that a far lower value of the claim is
given the transnational nature of these projects.
capable of support, allowing the matter to be settled
I also envisage other countries, especially those
within weeks.
with common law roots, dipping their toes into statutory adjudication, which would be a positive
Longley: Obtain early independent advice on the
development. Adjudication would filter out disputes
merits of the issue. Is there a reasonable prospect of
leaving those which are not suited for resolution
success or not? All too often, a contractor pursues a
through a rigid scheme, to be referred to arbitration.
weak case, ultimately to the detriment of the project,
Hong Kong and Singapore will likely continue to be
management time and expense and potential
the preferred seats for arbitration in Asia, and Kuala
relationships and further work opportunities. If an
Lumpur will be waiting in the wings as a rival for
issue has merits, then engage professional expertise
these seats.
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Nelson: One size does not fit all. Having a range of mechanisms appropriate to addressing the nature
cancellation and termination of projects is fertile ground for disputes.
and complexity of the issues between parties will remain key to successfully solving the various
Longley: I suspect that until the wider Asian
business problems faced by parties on projects.
market has gained experience in the tendering,
Those solutions need to be pragmatic. I see an
award and delivery of major projects there will be
increase in the use of tiered resolution mechanisms
multitudes of disputes that will end up in dispute
in more complex projects. Having bid a project, often
boards, arbitration or court for resolution. Far-sighted
against stiff competition, international contractors
parties will seek to improve its chances by obtaining
are increasingly being squeezed between GLC
independent expert advice and support, engaging in
employers and a local procurement chain. How
focused training initiatives and undertaking research
they deal with each is quite different and there is
in the wider disputes market. However, economic
a real danger that they are left holding liability in
pressures are likely to mean parties persist with
the middle. In certain sectors, dispute avoidance
unrealistic and overly-optimistic expectations and
behaviour is being driven by the oil price and a lack
thus provide the basis for an extensive disputes
of cash in the sector, which is unlikely to change
market. CD
in the near future; conversely, the postponement,
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EDITORIAL PARTNERS
E D I T O R I A L PA RT N E R
w w w. h i l l i n t l . c o m
Hill International Hill International is a world leader in providing construction claims and consulting services. Public- and private-sector clients have engaged us on some of the world’s largest and most Over the past four decades, Hill has participated in over 50,000 disputes valued in excess of US$100bn. Today, we are the largest construction claims practice with the most experience and the greatest depth of resources and capabilities in the world. We hire the best professionals, understand our clients’ needs and objectives, and make a full commitment to each and every project in which we are involved.
KEY CONTACTS
complex engineering and construction projects. Wendy MacLaughlin Senior Vice President London, UK T: +44 7540 158 226 E:
[email protected]
David Merritt Senior Vice President Dubai, UAE T: +971 50 265 8664 E:
[email protected]
Derek Nelson Senior Vice President Singapore T: +65 9182 9350 E:
[email protected]
Hill International The Global Leader in Managing Construction Risk