As a public organisation, road administrations have the responsibility to improve the road construction process. However, the changes in such process involve a number of the stakeholders, who have different perceptions about what is most important in the road construction process. Perspectives on the necessity and nature of change will differ too. In order to provide an environment in which the potential consequences of changes in procurement can be tested, it is important to develop a model that simulates the process, especially the social part of the system. To achieve this, the model requires perceptions of stakeholders. The paper presents a new framework that obtains worldviews of the stakeholders in the complex adaptive system and transforms them into a System Dynamics model. As a result, a computational model is developed to observe the behaviour of stakeholders in the system. The model can become a tool for testing policies in the complex adaptive system.