Integrating Building Information Modeling (BIM) into Public Construction Policy: A Systems-Based Analysis in the Thai Context

Abstract

Public construction plays a critical role in national economic and social development; however, in practice, it continues to face persistent structural challenges, including project delays, cost overruns, fragmented coordination, limited transparency in public procurement, and significant environmental impacts. These challenges reflect the limitations of conventional public construction management systems that rely heavily on document-based processes and siloed decision-making. At the same time, global transitions toward digital government and sustainable development have encouraged many countries to adopt digital technologies as policy instruments rather than merely technical tools. Among these technologies, Building Information Modeling (BIM) has gained international recognition for its ability to integrate and manage building data across the entire project life cycle. While BIM was originally developed as a technical solution to improve design and construction processes, several countries have progressively elevated its role to that of a policy instrument and national digital infrastructure for public construction governance. In Thailand, however, BIM adoption remains largely at the project or organizational level, characterized by voluntary use and pilot initiatives rather than systematic integration into public construction policy. This situation reveals a critical research gap concerning the role of BIM as a policy instrument within the Thai public-sector context.

The objectives of this study are threefold: (1) to analyze and synthesize approaches for integrating Building Information Modeling (BIM) into public construction policy frameworks; (2) to conceptualize BIM as a policy instrument that influences public construction governance at the system level rather than merely at the project level; and (3) to propose a conceptual framework and policy recommendations suitable for the Thai context. To achieve these objectives, the study adopts Systems Thinking in conjunction with the Policy Cycle Model as its analytical foundation. This combined framework allows BIM to be examined not only as a technological innovation but also as a subsystem embedded within the broader public policy system, supporting efficiency, sustainability, and regulatory governance throughout the policy cycle.

This research employs a qualitative methodology based on documentary research, content analysis, and comparative analysis. The data sources include academic literature from international databases, public policy documents and legal frameworks related to BIM adoption, international BIM standards such as ISO 19650, IFC, and COBie, and policy-level BIM implementation case studies from selected countries, including the United Kingdom, Singapore, the European Union, and Italy. The analytical process begins with open coding to identify key concepts related to BIM’s policy functions, followed by axial coding to organize these concepts into categories and overarching themes. The findings are then synthesized using a systems-based perspective, in which BIM is conceptualized as a subsystem interacting with legal frameworks, institutional arrangements, digital infrastructure, and policy objectives across different stages of the policy cycle, including agenda setting, policy formulation, implementation, and evaluation.

The results of the study indicate that the integration of BIM into public construction policy can be systematically understood through three interrelated dimensions. The first dimension is Efficiency. At the policy level, BIM functions as a structural mechanism that reduces uncertainty in public decision-making by improving cost control, schedule reliability, and design quality through standardized digital information and coordinated workflows. International case studies demonstrate that efficiency gains are not derived from technology alone but from the enforcement of shared standards and regulatory mandates that embed BIM into routine public-sector practices. The second dimension is Sustainability. BIM serves as a central data infrastructure that enables governments to integrate environmental objectives—such as life cycle assessment, energy performance analysis, and green public procurement—into policy design and monitoring processes. By transforming sustainability from an abstract policy goal into a measurable and operationalized mechanism, BIM supports long-term environmental governance and alignment with global sustainability agendas. The third dimension is Regulatory Compliance and Governance. The findings show that BIM has the potential to shift public construction governance from discretionary, document-based inspection toward data-driven and rule-based regulation. Through automated rule checking, digital submission platforms, and real-time compliance monitoring, BIM strengthens transparency, accountability, and consistency in regulatory oversight.

Overall, the findings suggest that countries with successful policy-level BIM adoption share common enabling conditions, including clear legal mandates, standardized data frameworks, robust national digital infrastructure, and sustained capacity-building initiatives. In contrast, fragmented or voluntary approaches tend to limit BIM’s transformative potential and confine its benefits to isolated projects.

In conclusion, this study argues that Building Information Modeling (BIM) should not be regarded merely as a technical tool for design and construction but as a systemic policy instrument capable of reshaping public construction governance. Integrating BIM into public construction policy enhances efficiency, supports sustainability objectives, and strengthens regulatory compliance through data-driven governance mechanisms. For Thailand, the study proposes that effective BIM integration requires the establishment of a clear legal and regulatory framework, the adoption of international BIM standards as national benchmarks, the development of a National Common Data Environment, and systematic investment in human capacity development. Furthermore, aligning BIM implementation with national sustainability policies and long-term carbon reduction targets can amplify its policy impact. By adopting a systems-based and policy-oriented approach to BIM, Thailand can strengthen transparency, accountability, and performance in public construction governance while advancing toward international standards and sustainable development goals.