An analysis of public sector prequalification procedures in Northern Ireland

Research output: Contribution to journalArticle

7 Citations (Scopus)

Abstract

The recent findings of two Northern Ireland procurement court casesusing the ‘restricted procedure’ have European wide implications. Theperceptions of having a ‘prequalification’ stage in addition to ‘quality/price’ areresearched; parts of the prequalification questionnaire (PQQ) are analysed andranked in importance. Economic operator perceptions are investigated onprojects above the European threshold using the restricted procedure. Findingsconfirm practitioners understand the court decisions ranking the evaluation of‘previous experience’ as the most important part within the prequalificationstage. There is ambivalence regarding PQQ’s providing value for money(VFM): 49% consider it does not provide additional VFM compared to thesingle stage process. The majority of organisations (62%) use externalconsultants when preparing PQQ submissions. Findings show the court caseshave resulted in PQQ’s becoming more generic, an innovative response is nolonger possible as it will be outside the scoring matrix. Practitioners providedsuggestions on improving the process.
LanguageEnglish
Pages273-288
JournalInternational Journal of Procurement Management
Volume5
Issue number3
DOIs
Publication statusPublished - 3 Jun 2012

Fingerprint

Public sector
Northern Ireland
Prequalification
Questionnaire
Value for money
Scoring
Economics
Ambivalence
Ranking
Operator
Evaluation
Procurement

Keywords

  • prequalification
  • construction contracts
  • construction
  • procurement
  • law
  • restricted procedure
  • Ireland.

Cite this

@article{f6257dd7b5784b7aa4831c6c39d20c1f,
title = "An analysis of public sector prequalification procedures in Northern Ireland",
abstract = "The recent findings of two Northern Ireland procurement court casesusing the ‘restricted procedure’ have European wide implications. Theperceptions of having a ‘prequalification’ stage in addition to ‘quality/price’ areresearched; parts of the prequalification questionnaire (PQQ) are analysed andranked in importance. Economic operator perceptions are investigated onprojects above the European threshold using the restricted procedure. Findingsconfirm practitioners understand the court decisions ranking the evaluation of‘previous experience’ as the most important part within the prequalificationstage. There is ambivalence regarding PQQ’s providing value for money(VFM): 49{\%} consider it does not provide additional VFM compared to thesingle stage process. The majority of organisations (62{\%}) use externalconsultants when preparing PQQ submissions. Findings show the court caseshave resulted in PQQ’s becoming more generic, an innovative response is nolonger possible as it will be outside the scoring matrix. Practitioners providedsuggestions on improving the process.",
keywords = "prequalification, construction contracts, construction, procurement, law, restricted procedure, Ireland.",
author = "Robert Eadie and John Rodgers and Clare Mahon and Patrick Smyth",
note = "Reference text: Bartlett, J.E., Kotrlik, J.W. and Higgins, C.C. (2001) ‘Organisational research: determining appropriate sample size in survey research’, in Information Technology, Learning, and Performance Journal, Vol. 19, No. 1, pp.43–50. Basheka, B. and Bisangabasaija, E. (2010) ‘Determinants of unethical public procurement in local government systems of Uganda: a case study’, International Journal of Procurement Management, Vol. 3, No. 1 pp.94–104. Bing, X. and Xia, G. (2010) ‘Analysis on the pre-qualification system of construction project bidding’, ICEE, pp.2652–2655, Proceedings of 2010 International Conference on E-Business and E-Government, 2010, available at http://www.computer.org/portal/web/csdl/doi/10.1109/ICEE.2010.670 (accessed on 16 July 2011). Brook, M. (2004) Estimating and Tendering for Construction Work, 3rd ed., Butterworth-Heinemann, England. BSI/PAS 91 (2010) ‘Construction related procurement – prequalification questionnaires’, available at http://www.bis.gov.uk/assets/biscore/business-sectors/docs/b/bsispecificationpas91- construction-procurement.pdf (accessed on 11 May 2011). Chan, D. and Kumaraswamy, D. (2001) ‘A comparative study of causes of time overruns in Hong Kong construction projects’, International Journal of Project Management, Vol. 15, No. 1, pp.55–63. Costantino, N., Falagario, M. and Iacobellis, G. (2008) ‘Reducing the costs of public tenders: a modest proposal’, in Proceedings of 3rd International Public Procurement Conference Proceedings, 28–30 August, Amsterdam, The Netherlands, available at http://www.ippa.ws/ippc3_proceedings.html (accessed on 16 July 2011). CourtsNI (2007) Henry Brothers (Magherafelt) Limited, F B McKee and Company Limited and Desmond Scott and Philip Ewing trading as Woodvale Construction Company Limited –v- Department of Education, Neutral Citation no. [2007] NIQB 116 available at http://www.courtsni.gov.uk/NR/rdonlyres/08DFF6FF-45B4-44EAB2EF- 97A64C3D0EA3/0/j_j_COG7018Final.htm (accessed on 12 May 2011). CourtsNI (2008) McLaughlin and Harvey Limited -v- Department of Finance and Personnel [No. 2], Neutral Citation no.: [2008] NIQB 91 [Online], available at http://www.courtsni.gov.uk/NR/rdonlyres/27E6FDA5-8B3E-442C-AAD7- AD50EA3209C4/0/j_j_DEE7249FINAL.htm (accessed on 11 May 2011). CPDNI (2004) ‘Public procurement: a guide for small and medium sized enterprises’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpd-suppliers/cpdsmall-medium-sizedenterprises- social-economy-enterprises/cpd-guidefor-smes/pdf_sme_guidance.pdf (accessed on 10 May 2011). CPDNI (2007) ‘Procurement strategy for works and services’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpdpolicy-and-legislation/content_- _cpd_policy_framework_for_construction_procurement/content_- _cpdprocurement_strategy_for_construction_works_and_services/central_procurement_direct orate_-_contract_strategy_for_isni.pdf (accessed on 10 May 2011). CPDNI (2010) ‘Procurement guidance note 04/10 selection and prequalification of contractors’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpd-policy-and-legislation/ content_-_cpd_-_policy_-_procurement_guidance_notes/pgn-04-10/pgn_04_10_selection_ and_pre-qualification_of_contractors__version_7_dec_2010_.pdf (accessed on 10 September 2011). Craven, R and Olson-Welsh, J (2008) ‘Court brings down framework agreement’, pp.33–35, available at http://www.mayerbrown.com/islamicfinance/article.asp?id=5957&nid=12368 (accessed on 10 May 2011). E&I Procurement Taskforce (2011) ‘Buying smarter in tougher times: conclusions and recommendations of the EIB procurement taskforce’, available at http://www.cewales.org.uk/cew/wpcontent/uploads/Buying-Smarter-in-Tougher-Times- Report.pdf (accessed on 11 May 2011). Erlendsson (2002) ‘Value for money studies in higher education’, available at http://notendur.hi.is/joner/eaps/wh_vfmhe.htm (accessed on 12 May 2011). Eur-Lex (2008) Emm. G. Lianakis AE, Sima Anonymi Techniki Etaireia Meleton kai Epivlepseon and Nikolaos Vlachopoulos v Dimos Alexandroupolis and Others, European Court reports 2008 Page I-00251, available at http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:62006J0532:EN:NOT (accessed on 12 May 2011). Glover, A. (2008) ‘Accelerating the SME economic engine: through transparent, simple and strategic procurement’, Office of Public Sector Information. Gransberg, D. (2010) Framework for Performance-Based Contractor Prequalification. Transportation Research Record: Journal of the Transportation Research Board, Vol. 2151, pp.46–54, available at http://trb.metapress.com/content/e625t7jq75pt77r8/ (accessed on 16 July 2011). Gransberg, D. and Riemer, C. (2009) Performance-Based Construction Contractor Prequalification. NCHRP Synthesis 390, National Research Council (U.S.). Transportation Research Board, National Cooperative Highway Research Program, American Association of State Highway and Transportation Officials, USA, Federal Highway Administration. Griffith, A., Knight, A. and King, A. (2003) Best Practice Tendering for Design and Build Projects, Thomas Telford, Ltd., London. Guijarro, L. (2009) ‘ICT standardisation and public procurement in the United States and in the European Union: influence on e-government deployment’, Telecommunications Policy, Vol. 33, Nos. 5–6, pp.285–295. Krejcie, R.V. and Morgan, D.W. (1970) ‘Determining sample size for research activities’, Educational and Psychological Measurement, Vol. 30, No. 3, pp.607–610. Lam, K.C., Ng, S.T., Hu, T., Skitmore, M. and Cheung, S.O. (2000) ‘Decision support system for contractor pre-qualification – artificial neural network model’, Construction and Architectural Management, Vol. 7, No. 3, pp.251–266. Laryea, S. and Hughes, W. (2009) ‘Commercial reviews in the tender process of contractors’, Engineering, Construction and Architectural Management, Vol. 16, No. 6, pp.558–572. Murdoch, J. and Hughes, W. (2008) Construction Contracts, 4th ed., Taylor & Francis, London. NIAO (2005) ‘Modernising construction procurement in Northern Ireland’, Northern Ireland Audit Office Report, available at http://www.niauditoffice.gov.uk/pubs/reports/2005/ModernisingConstruction/FullReport.pdf (accessed on 10 May 2011). Office of Government Commerce (OGC) (2005) Office of Government Commerce, Achieving Excellence 11-Sustainability, available at http://www.ogc.gov.uk/ppm_documents_construction.asp (accessed on 9 May 2011). Office of Government Commerce (OGC) (2009) ‘Pre-qualification questionnaire for tender evaluation’, available at http://www.ogc.gov.uk/policy_and_standards_framework_prequalification_questionniare_pqq .asp (accessed on 11 May 2011). Oyegoke, A., McDermott, P. and Abbott, C. (2009) ‘Achieving sustainability in construction through the specialist task organisation procurement approach’, International Journal of Procurement Management, 1 May, Vol. 2, No. 3, pp.288–313. Pavia, P. (2002) ‘Fee percentage a consultant’s view’, NEC Users’ Group Newsletter No. 22 July, pp.4–5, available at http://www.neccontract.com/PDF_DOC/necnews22.pdf (accessed on 11 May 2011). PWC (2009) ‘Review of centres of procurement expertise status and policy implementation final report’, September, available at http://www.dfpni.gov.uk/index/procurement- 2/cpd/cpd_publications/cpd_review_of_centres_of_procurement_expertise/review_of_centres _of_procurement_expertise.pdf (accessed on 11 May 2011). Quigg, E. (2008) ‘Northern Ireland procurement case sends ripples…’, Construction Insight, No. 27, Autumn Winter, available at http://www.quigggolden.com/newsletters/newsletters/ ROI/ROI{\%}20Newsletter{\%}20No27.pdf (accessed on 10 September 2011). Ramsey, V. Baster, J. Minogue, A. and O’Reilly, M. (2009) ‘Construction Law Handbook 2009’, Section 1.5, available at http://www.thomastelford.com/journals/DocumentLibrary/chap01- 05.pdf (accessed on 10 May 2011). Sapountzis, S., Yates, K., Kagioglou, M. and Aouad G. (2009) ‘Realising benefits in primary healthcare infrastructures’, Facilities, Vol. 27, Nos. 3/4, pp.74–87. Smallbone, D., Kitching, J., Xheneti, M. and Athayde, R. (2009) ‘Procurement and supplier diversity in the London 2012 Olympic Games’, in Proceedings of ICSB World Conference, 21–24 June, Seoul, available at http://eprints.kingston.ac.uk/6918/1/Smallbone-D-6918.pdf (accessed on 16 July 2011). Smith, N. (2009) Procurement Is the Key to Recovery, Says the OGC, available at http://www.publicservice.co.uk/feature_story.asp?id=11314 (accessed on 10 September 2011). Stationary Office Limited (2006, Amended 2009) ‘The Public Contracts Regulations 2006’, available at http://www.legislation.gov.uk/uksi/2006/5/contents/made (accessed on 16 July 2011). Thranet (2011) ‘9.Prequalification and Accreditation’, available at http://www.thanet.gov.uk/council__democracy/tenders__contracts/procurement_code_of_practice/qualification__accreditation.aspx (accessed on 11 May 2011).",
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}

An analysis of public sector prequalification procedures in Northern Ireland. / Eadie, Robert; Rodgers, John; Mahon, Clare; Smyth, Patrick.

In: International Journal of Procurement Management, Vol. 5, No. 3, 03.06.2012, p. 273-288.

Research output: Contribution to journalArticle

TY - JOUR

T1 - An analysis of public sector prequalification procedures in Northern Ireland

AU - Eadie, Robert

AU - Rodgers, John

AU - Mahon, Clare

AU - Smyth, Patrick

N1 - Reference text: Bartlett, J.E., Kotrlik, J.W. and Higgins, C.C. (2001) ‘Organisational research: determining appropriate sample size in survey research’, in Information Technology, Learning, and Performance Journal, Vol. 19, No. 1, pp.43–50. Basheka, B. and Bisangabasaija, E. (2010) ‘Determinants of unethical public procurement in local government systems of Uganda: a case study’, International Journal of Procurement Management, Vol. 3, No. 1 pp.94–104. Bing, X. and Xia, G. (2010) ‘Analysis on the pre-qualification system of construction project bidding’, ICEE, pp.2652–2655, Proceedings of 2010 International Conference on E-Business and E-Government, 2010, available at http://www.computer.org/portal/web/csdl/doi/10.1109/ICEE.2010.670 (accessed on 16 July 2011). Brook, M. (2004) Estimating and Tendering for Construction Work, 3rd ed., Butterworth-Heinemann, England. BSI/PAS 91 (2010) ‘Construction related procurement – prequalification questionnaires’, available at http://www.bis.gov.uk/assets/biscore/business-sectors/docs/b/bsispecificationpas91- construction-procurement.pdf (accessed on 11 May 2011). Chan, D. and Kumaraswamy, D. (2001) ‘A comparative study of causes of time overruns in Hong Kong construction projects’, International Journal of Project Management, Vol. 15, No. 1, pp.55–63. Costantino, N., Falagario, M. and Iacobellis, G. (2008) ‘Reducing the costs of public tenders: a modest proposal’, in Proceedings of 3rd International Public Procurement Conference Proceedings, 28–30 August, Amsterdam, The Netherlands, available at http://www.ippa.ws/ippc3_proceedings.html (accessed on 16 July 2011). CourtsNI (2007) Henry Brothers (Magherafelt) Limited, F B McKee and Company Limited and Desmond Scott and Philip Ewing trading as Woodvale Construction Company Limited –v- Department of Education, Neutral Citation no. [2007] NIQB 116 available at http://www.courtsni.gov.uk/NR/rdonlyres/08DFF6FF-45B4-44EAB2EF- 97A64C3D0EA3/0/j_j_COG7018Final.htm (accessed on 12 May 2011). CourtsNI (2008) McLaughlin and Harvey Limited -v- Department of Finance and Personnel [No. 2], Neutral Citation no.: [2008] NIQB 91 [Online], available at http://www.courtsni.gov.uk/NR/rdonlyres/27E6FDA5-8B3E-442C-AAD7- AD50EA3209C4/0/j_j_DEE7249FINAL.htm (accessed on 11 May 2011). CPDNI (2004) ‘Public procurement: a guide for small and medium sized enterprises’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpd-suppliers/cpdsmall-medium-sizedenterprises- social-economy-enterprises/cpd-guidefor-smes/pdf_sme_guidance.pdf (accessed on 10 May 2011). CPDNI (2007) ‘Procurement strategy for works and services’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpdpolicy-and-legislation/content_- _cpd_policy_framework_for_construction_procurement/content_- _cpdprocurement_strategy_for_construction_works_and_services/central_procurement_direct orate_-_contract_strategy_for_isni.pdf (accessed on 10 May 2011). CPDNI (2010) ‘Procurement guidance note 04/10 selection and prequalification of contractors’, available at http://www.dfpni.gov.uk/index/procurement-2/cpd/cpd-policy-and-legislation/ content_-_cpd_-_policy_-_procurement_guidance_notes/pgn-04-10/pgn_04_10_selection_ and_pre-qualification_of_contractors__version_7_dec_2010_.pdf (accessed on 10 September 2011). Craven, R and Olson-Welsh, J (2008) ‘Court brings down framework agreement’, pp.33–35, available at http://www.mayerbrown.com/islamicfinance/article.asp?id=5957&nid=12368 (accessed on 10 May 2011). E&I Procurement Taskforce (2011) ‘Buying smarter in tougher times: conclusions and recommendations of the EIB procurement taskforce’, available at http://www.cewales.org.uk/cew/wpcontent/uploads/Buying-Smarter-in-Tougher-Times- Report.pdf (accessed on 11 May 2011). Erlendsson (2002) ‘Value for money studies in higher education’, available at http://notendur.hi.is/joner/eaps/wh_vfmhe.htm (accessed on 12 May 2011). Eur-Lex (2008) Emm. G. Lianakis AE, Sima Anonymi Techniki Etaireia Meleton kai Epivlepseon and Nikolaos Vlachopoulos v Dimos Alexandroupolis and Others, European Court reports 2008 Page I-00251, available at http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:62006J0532:EN:NOT (accessed on 12 May 2011). Glover, A. (2008) ‘Accelerating the SME economic engine: through transparent, simple and strategic procurement’, Office of Public Sector Information. Gransberg, D. (2010) Framework for Performance-Based Contractor Prequalification. Transportation Research Record: Journal of the Transportation Research Board, Vol. 2151, pp.46–54, available at http://trb.metapress.com/content/e625t7jq75pt77r8/ (accessed on 16 July 2011). Gransberg, D. and Riemer, C. (2009) Performance-Based Construction Contractor Prequalification. NCHRP Synthesis 390, National Research Council (U.S.). Transportation Research Board, National Cooperative Highway Research Program, American Association of State Highway and Transportation Officials, USA, Federal Highway Administration. Griffith, A., Knight, A. and King, A. (2003) Best Practice Tendering for Design and Build Projects, Thomas Telford, Ltd., London. Guijarro, L. (2009) ‘ICT standardisation and public procurement in the United States and in the European Union: influence on e-government deployment’, Telecommunications Policy, Vol. 33, Nos. 5–6, pp.285–295. Krejcie, R.V. and Morgan, D.W. (1970) ‘Determining sample size for research activities’, Educational and Psychological Measurement, Vol. 30, No. 3, pp.607–610. Lam, K.C., Ng, S.T., Hu, T., Skitmore, M. and Cheung, S.O. (2000) ‘Decision support system for contractor pre-qualification – artificial neural network model’, Construction and Architectural Management, Vol. 7, No. 3, pp.251–266. Laryea, S. and Hughes, W. (2009) ‘Commercial reviews in the tender process of contractors’, Engineering, Construction and Architectural Management, Vol. 16, No. 6, pp.558–572. Murdoch, J. and Hughes, W. (2008) Construction Contracts, 4th ed., Taylor & Francis, London. NIAO (2005) ‘Modernising construction procurement in Northern Ireland’, Northern Ireland Audit Office Report, available at http://www.niauditoffice.gov.uk/pubs/reports/2005/ModernisingConstruction/FullReport.pdf (accessed on 10 May 2011). Office of Government Commerce (OGC) (2005) Office of Government Commerce, Achieving Excellence 11-Sustainability, available at http://www.ogc.gov.uk/ppm_documents_construction.asp (accessed on 9 May 2011). Office of Government Commerce (OGC) (2009) ‘Pre-qualification questionnaire for tender evaluation’, available at http://www.ogc.gov.uk/policy_and_standards_framework_prequalification_questionniare_pqq .asp (accessed on 11 May 2011). Oyegoke, A., McDermott, P. and Abbott, C. (2009) ‘Achieving sustainability in construction through the specialist task organisation procurement approach’, International Journal of Procurement Management, 1 May, Vol. 2, No. 3, pp.288–313. Pavia, P. (2002) ‘Fee percentage a consultant’s view’, NEC Users’ Group Newsletter No. 22 July, pp.4–5, available at http://www.neccontract.com/PDF_DOC/necnews22.pdf (accessed on 11 May 2011). PWC (2009) ‘Review of centres of procurement expertise status and policy implementation final report’, September, available at http://www.dfpni.gov.uk/index/procurement- 2/cpd/cpd_publications/cpd_review_of_centres_of_procurement_expertise/review_of_centres _of_procurement_expertise.pdf (accessed on 11 May 2011). Quigg, E. (2008) ‘Northern Ireland procurement case sends ripples…’, Construction Insight, No. 27, Autumn Winter, available at http://www.quigggolden.com/newsletters/newsletters/ ROI/ROI%20Newsletter%20No27.pdf (accessed on 10 September 2011). Ramsey, V. Baster, J. Minogue, A. and O’Reilly, M. (2009) ‘Construction Law Handbook 2009’, Section 1.5, available at http://www.thomastelford.com/journals/DocumentLibrary/chap01- 05.pdf (accessed on 10 May 2011). Sapountzis, S., Yates, K., Kagioglou, M. and Aouad G. (2009) ‘Realising benefits in primary healthcare infrastructures’, Facilities, Vol. 27, Nos. 3/4, pp.74–87. Smallbone, D., Kitching, J., Xheneti, M. and Athayde, R. (2009) ‘Procurement and supplier diversity in the London 2012 Olympic Games’, in Proceedings of ICSB World Conference, 21–24 June, Seoul, available at http://eprints.kingston.ac.uk/6918/1/Smallbone-D-6918.pdf (accessed on 16 July 2011). Smith, N. (2009) Procurement Is the Key to Recovery, Says the OGC, available at http://www.publicservice.co.uk/feature_story.asp?id=11314 (accessed on 10 September 2011). Stationary Office Limited (2006, Amended 2009) ‘The Public Contracts Regulations 2006’, available at http://www.legislation.gov.uk/uksi/2006/5/contents/made (accessed on 16 July 2011). Thranet (2011) ‘9.Prequalification and Accreditation’, available at http://www.thanet.gov.uk/council__democracy/tenders__contracts/procurement_code_of_practice/qualification__accreditation.aspx (accessed on 11 May 2011).

PY - 2012/6/3

Y1 - 2012/6/3

N2 - The recent findings of two Northern Ireland procurement court casesusing the ‘restricted procedure’ have European wide implications. Theperceptions of having a ‘prequalification’ stage in addition to ‘quality/price’ areresearched; parts of the prequalification questionnaire (PQQ) are analysed andranked in importance. Economic operator perceptions are investigated onprojects above the European threshold using the restricted procedure. Findingsconfirm practitioners understand the court decisions ranking the evaluation of‘previous experience’ as the most important part within the prequalificationstage. There is ambivalence regarding PQQ’s providing value for money(VFM): 49% consider it does not provide additional VFM compared to thesingle stage process. The majority of organisations (62%) use externalconsultants when preparing PQQ submissions. Findings show the court caseshave resulted in PQQ’s becoming more generic, an innovative response is nolonger possible as it will be outside the scoring matrix. Practitioners providedsuggestions on improving the process.

AB - The recent findings of two Northern Ireland procurement court casesusing the ‘restricted procedure’ have European wide implications. Theperceptions of having a ‘prequalification’ stage in addition to ‘quality/price’ areresearched; parts of the prequalification questionnaire (PQQ) are analysed andranked in importance. Economic operator perceptions are investigated onprojects above the European threshold using the restricted procedure. Findingsconfirm practitioners understand the court decisions ranking the evaluation of‘previous experience’ as the most important part within the prequalificationstage. There is ambivalence regarding PQQ’s providing value for money(VFM): 49% consider it does not provide additional VFM compared to thesingle stage process. The majority of organisations (62%) use externalconsultants when preparing PQQ submissions. Findings show the court caseshave resulted in PQQ’s becoming more generic, an innovative response is nolonger possible as it will be outside the scoring matrix. Practitioners providedsuggestions on improving the process.

KW - prequalification

KW - construction contracts

KW - construction

KW - procurement

KW - law

KW - restricted procedure

KW - Ireland.

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DO - 10.1504/IJPM.2012.047168

M3 - Article

VL - 5

SP - 273

EP - 288

JO - International Journal of Procurement Management

T2 - International Journal of Procurement Management

JF - International Journal of Procurement Management

SN - 1753-8432

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ER -