老挝政府采购系统评估报告

老挝政府采购系统评估报告
老挝政府采购系统评估报告

Lao PDR

N ATIONAL P UBLIC P ROCUREMENT S YSTEM A SSESSMENT

R EPORT

Procurement Monitoring Office

Ministry of Finance

Lao PDR

March 2006

T ABLE OF C ONTENTS

INTRODUCTION – APPROACH AND METHODOLOGY (1)

TEAM MEMBERS (2)

ASSESSMENT RATINGS (3)

BIS ASSESSMENT (4)

S UMMARY OF F INDINGS (4)

R ECOMMENDATIONS (6)

Short Term Recommendations (7)

Medium Term Recommendations (15)

Long Term Recommendations (18)

ANNEXES (20)

Introduction – Approach and Methodology

The assessment of the public procurement system of Lao People’s Democratic Republic (PDR) was conducted using the Baseline Indicators System (BIS) for measuring the quality of a country’s procurement policies and institutional capacity, which was developed by the joint World Bank and Organisation for Economic Co-operation and Development (OECD) Development Assistance Committee (DAC) Procurement Roundtable.1 As such, the assessment was undertaken on the basis of four (4) key areas called “Pillars,” which are composed of twelve (12) Indicators that have been identified as the core components of a public procurement system. These twelve (12) Indicators are, in turn, composed of Baselines that are considered the desirable standards against which the existing elements of Lao PDR’s public procurement system may be assessed.

For the assessment, points were given to each Baseline, the total of which corresponds to weights assigned to each of the Indicators. In turn, the weights of these Indicators comprise the total score for each of the four (4) Pillars. To reflect their equal importance, each of the Pillars was given a weight of twenty-five percent (25%) each, amounting to a grand total of one hundred percent (100%). These points and weights were discussed with, and agreed upon by, the Procurement Monitoring Office (PrMO), Ministry of Finance (MOF) of the Government of Laos (GOL), so that the distribution thereof would be based upon the importance and relevance of each of the Baselines and Indicators involved, in relation to the GOL’s public procurement reform program.

In conducting the BIS assessment, a review of Lao PDR’s public procurement legislative and institutional framework had to be undertaken. This review included the following:

1. The Decree of the Prime Minister on Government Procurement of

Goods, Construction, Maintenance and Service, dated 9 January 2004

(the “Procurement Decree”);

2. The Implementing Rules and Regulations on the Decree of

Government Procurement of Goods, Works, Maintenance and

Services, specifically Ministry of Finance No. 0063/MOF, dated 12

March 2004 (IRR); and

3. The structure and operations of the PrMO, as well as its charter – the

Decision of the Minister on the Establishment of the Procurement

Monitoring Office, specifically Ministry of Finance No. 2382/MOF, dated

4 November 2004 (the “PrMO Charter”).

Lao PDR’s Budget Law and its recently enacted Anti-Corruption Law were also considered during the discussions.

1 The World Bank (Operations and Country Services), Increasing the Use of Country Systems in Procurement,

p. 5 (March 2005).

In order to provide field data for the BIS assessment, a national consultant visited the following key institutions to interview officials therein and, when possible, gather data and documentation:

1. Ministry of Agriculture and Forestry (MAF);

2. Ministry of Communications, Transportation, Posts and Construction

(MCTPC);

of Education (MOE);

3. Ministry

4. Ministry of Health (MOH);

and

Capital;

5. Vientiane

6. Electricite du Laos (EDL), a State-Owned Enterprise.

The PrMO plans to have two (2) more institutions visited, in order to conduct further interviews and gather data that may be used for the BIS assessment.

The BIS weight distribution and the initial findings were presented to the GOL Procurement Technical Working Group (TWG) for review and further confirmation during a meeting held on 22 February 2006, at the PrMO office.

A Validation Workshop was held on 10 March 2006, at the International Cooperation and Training Center (ICTC), Vientiane Capital, to further validate the findings of this BIS Report. The participants of the Validation Workshop were technical experts and representatives of key institutions – including those approached for this Report – as well as those represented in the GOL Procurement TWG. Professional associations and private companies involved in GOL goods and civil works procurements were invited to gather their views and comments on the Report, but did not attend. The institutions/agencies that were represented during the Validation Workshop were:

1. MOH;

2. MOE;

3. MCTPC;

4. MOF;

5. MAF;

6. Ministry of Foreign Affairs (MOFA);

Capital;

7. Vientiane

8. State Inspection Authority (SIA);

9. Lao Telecommunications (LTC) (a State-Owned Enterprise);

10. Enterprise Telecommunications of Lao (ETL) (a State-Owned

Enterprise); and

11. The World Bank.

Team Members

The members of the team that conducted the BIS assessment are:

1. Mr. Thone PHONEPHACHANH – Director, PrMO

2. Mr. Phimpha PHOMMAVONG – Officer, PrMO

3. Mr. Passaya PHOLSENA – Officer, PrMO

4. Mr. Jose Luis SYQUIA – International Consultant

5. Ms. Phongxay WAHL – National Consultant

The representatives of the Procurement TWG who were present during the 22 February 2006 meeting and reviewed the BIS assessment are:

1. Mr. Viratha PHONEKEO – Supply Department Manager, EDL

2. Mr. Thongdeun KHAMMANY – Deputy Director of Division of Roads,

MCTPC

3. Mr. Somthong PHOMTHAVIXAY – Deputy Director of Planning and

Cooperation Department, MCTPC

4. Ms. Siriphone SOUPHANTHONG – Deputy Head of Division,

Cooperation Planning and Investment (CPI)

Assessment Ratings

The Assessment Ratings per Indicator shown below were used to determine the Level of Achievement of Lao PDR in order to provide a mapping of its existing public procurement system. The Assessment Ratings are based upon the points garnered for each Baseline.

Level of Achievement:

0 – 19% of Indicator 20 – 69% of

Indicator

70 – 89% of

Indicator

90 – 100% of

Indicator

NA PA SA FA Legend:

NA – Not Achieved (Less than 20% of Baseline elements achieved, or 1 or more Mandatory Baseline/s is/are not achieved)

PA – Partially Achieved (At least 20% but less than 70% of Baseline elements achieved, with all Mandatory Baselines achieved)

SA – Substantially achieved (At least 70% but less than 90% rating on Baseline elements, with all Mandatory Baselines achieved)

FA – Fully Achieved (90% to 100% rating on Baseline elements, with all Mandatory Baselines achieved)

It should be noted that a number of mandatory Baselines are identified as having

critical importance, so that satisfactory compliance for each of these would always

have to be required ex ante.2 These mandatory Baselines/Sub-Baselines are highlighted in yellow in the attached BIS Assessment, and obtaining a "0" score in

any of these would result to an NA rating for the Indicator where such Baseline/Sub-Baseline is found, regardless of the points attained therefor. These Assessment Ratings may also be applied to the scores attained by Lao PDR for each Pillar, or

even to the Grand Total Score, but the effect of the presence or absence of the mandatory Baselines would have to be disregarded so that an accurate overall

profile may be had.

2Id., at 29.

BIS Assessment

Applying the BIS weights upon Lao PDR’s public procurement system, a Grand Total Score of 46.15% was garnered as a result of the scores attained in the attached BIS Rating Sheet. Adopting the above Assessment Ratings, this translates to a PA Level of Achievement, whereby at least twenty percent (20%) but less than seventy percent (70%) of ALL Baseline elements have been achieved.

The BIS Assessment Table, attached hereto as Annex “A,” provides for the descriptive analysis of the ratings as to where, how and why GOL fully, substantially, partially or fails to achieve the standards set by the Baselines. It contains: (i) the Pillars with their corresponding weights; (ii) the Indicators with their assigned weights; (iii) the Baselines and their allotted points; and (iv) the findings for each Baseline. The BIS Rating Sheet and Charts for this Report are attached hereto as Annex “B.”

Summary of Findings

The BIS Rating Sheet shows GOL garnering a rating of FA for Indicator 1 (the country’s procurement legislative and regulatory framework complies with applicable obligations deriving from national and international standards). This is due to the fact that the Procurement Decree satisfies majority of the Baselines therein. However, it should be noted that a concern was raised for a mandatory Sub-Baseline element under Indicator 1. In particular, on the matter of the existence of neutral specifications with reference to international standards, it was observed that complaints have been raised to PrMO regarding unclear specifications and high standards for goods procurement, as well as high qualification requirements for civil works – especially for foreign funded projects. Notwithstanding this, the Level of Achievement shows GOL attaining ninety-two percent (92%) of the Baselines under Indicator 1, and an overall score of seventy-one point twenty percent (71.20%) with a rating of SA for Pillar I (The Legislative and Regulatory Framework).

A look at the BIS Assessment Table would further show that GOL’s strong rating in Pillar I is brought about by the fact that it recently passed a Procurement Decree on 9 January 2004, and that substantial portions of this Decree support – or at times are similar to – the principles and procedures found in the guidelines of International Financing Institutions (IFIs), e.g., The World Bank and the Asian Development Bank (ADB). For example, GOL attained positive marks on the use of open, competitive, fair and predictable procurement procedures, the use international competitive methods, the publication of opportunities, and the use of limited and controlled preferential clauses.

However, as with any reform legislation or initiative, the next step to take after the successful passage of a law is to ensure effective implementation through the institutionalization of reform measures. As such, it comes as no surprise that, although GOL attained encouraging ratings for Pillar I, the results for Pillars II, III, and IV show much room for improvement. Otherwise stated, it is apparent from the overall ratings that, after having successfully legislated its procurement reforms, GOL would now have to focus its efforts toward ensuring that this new law is

successfully implemented in both the central and local governments, including the provincial and district offices.

In line with the above, the following weaknesses in GOL’s public procurement system stand out:

1. The lack of Standard Bidding Documents and Generic Procurement

Manuals;

integration with governance systems;

2. Insufficient

3. The absence of a professionalization program and private sector

orientation;

4. Insufficient competition in public biddings;

5. The lack of a system for collecting key data and monitoring

performance;

6. Weak external and internal control and audit at the agency level; and

7. Low confidence of Private Sector in the legal and regulatory

framework, as well as in the enforcement of administrative penalties.

To counter these weaknesses, GOL would have to work towards improving its ratings in the following indicators:

1. The integration of the public procurement system with the entire public

governance system, such as establishing proper linkages between

budgeting and procurement;

2. The capacity of public procurement practitioners and managers;

3. The actual procurement operations of local governments and field

offices;

4. The competitiveness and capacity of local suppliers and contractors, as

well as the overall confidence of the domestic market in the new

system;

5. The external and internal audit and control system; and

6. The implementation of rules on ethics and anti-corruption.

At any rate, with the establishment of the normative/regulatory body, i.e. the PrMO, it is safe to say that GOL has set itself on the right track towards achieving an institutionalized and effective public procurement system. Although the BIS Rating Sheet shows that GOL has only achieved a PA rating for Indicator 4 (on the normative/regulatory body), it is only five (5) percentage points short of a satisfactory rating of seventy percent (70%). This shows that the PrMO satisfies most of the

characteristics and functions required of a centralized normative/regulatory body, such as its establishment in law and the operation of a “help desk,” but would require more resources, assistance and a higher status in law to perform these functions effectively.

GOL also attained positive results in other aspects of the BIS, particularly in terms of:

1. Having clearly defined rules and procedures for contract administration,

dispute resolution and enforcement mechanisms;

2. Having a framework for an administrative and judicial complaint review

system, albeit one that needs strengthening in terms of structure and

capacity, to efficiently handle complaints; and

3. Having a system that supports international publication of international

public bidding opportunities.

Finally, with the recent approval by the National Assembly of the Anti-Corruption Law, GOL attained a high rating for Indicator 12, particularly for having a legal and regulatory system that defines responsibilities, accountabilities and penalties for individuals and firms engaged in fraudulent or corrupt practices, a code of conduct/ethics, and an anti-corruption program that covers fraud and corruption in public procurement. This rating is enforced by the existence of the SIA as the body with which complaints or reports of fraudulent, corrupt or unethical behavior may be filed.

All taken, the following strengths in GOL’s public procurement system may be listed:

1. The omnibus Procurement Decree;

Rules and Regulations;

Implementing

2. The

3. The Similarity of GOL procurement rules with IFI Guidelines;

4. A centralized oversight body;

5. The existence of rules on contract administration; and

6. An anti-corruption program.

Recommendations

Although the BIS assessment shows several areas in the GOL public procurement system where improvement may be had, this does not necessarily mean that all these areas would have to be addressed at this point. As such, this Report will make a distinction among short term (within 1 year), medium term (within 3 years), and long term (within 5 years) recommendations, in order to distinguish those areas of the procurement system that would have to be prioritized, and those that may be attained realistically within a short period. Needless to say, these recommendations take the aforementioned strengths and weaknesses of GOL’s public procurement

system into account, and are intended to assist it move from its current Assessment Rating to more comfortable rating.

Short Term Recommendations

To ensure that the reform measures provided in the Procurement Decree and its IRR are properly cemented and cascaded from the central government down to the local governments, provincial, district and project offices, GOL would have to focus much of its efforts on expanding knowledge of the new procedures, establishing a system for data collection and information generation, and building the capacity of the PrMO – as central office that may be used to catalyze all reform efforts, both within and outside the government. In particular, the following may be recommended:

a. Strengthen the PrMO (to improve results in Indicator 4). The

Procurement Decree, its IRR and the PrMO Charter provide several responsibilities for the PrMO, thereby making it a significant agency for GOL public procurement. Some of these functions are listed in Article 4 of the PrMO Charter, and No. 13 of this Article provides further that the PrMO shall “fulfill the objectives of the Decree 03/PM dated January 2004 (the Procurement Decree) and the Implementing Rules and Regulations.” This reference to the Procurement Decree brings up more responsibilities for the PrMO, not only covering the fields of policy and regulation, but well into the realms of administrative review and operations. This particular issue on the multiple responsibilities of the PrMO would have to be addressed, because it creates a scenario whereby the PrMO is not only involved in regulation and policy formulation, but also is also involved to a certain extent in the execution of contract, such as: (i) the approval of extension of bid validity; (ii) the approval of a substantial reduction in the scope of contract documents in case of rejection of bids, and (iii) the approval of the bid evaluation. On this point, it is recommended that any portion of the Procurement Decree and its IRR granting the PrMO the authority to approve aspects of the actual procurement operations of a procuring entity would have to be rethought and, if possible, removed, to isolate it from controversies that may arise in the execution of government contracts. Another crucial matter is to ensure that the PrMO is sufficiently established to perform its role as “the central organ of state administration in all matters of public procurement.”3 In view of all these, it appears that the current level of authority, structure, staffing and resources of the PrMO are incongruent with its tasks.

?On the level of authority, Article 2 of the PrMO Charter establishes this office as a Division of Office under the Ministry of Finance. However,

given the fact that the PrMO is tasked to provide advisory services to

line agencies and review decisions of Tendering Committees on

complaints filed in accordance with Article 33 of the IRR, among

others, it is recommended that the PrMO Charter be amended to

increase its level in the bureaucracy to at least that of a Department. A

higher level would give the PrMO more ascendancy over other 3 Ministry of Finance No. 2382/MOF, dated 4 November 2004 (the “PrMO Charter”), Art. 3.

procuring entities and Tendering Committees, with respect to its

decision-making, administrative review and regulatory functions. This

would also allow it to have a structure composed of Division-level

offices.

?On structure and staffing, Article 6, Chapter II of the PrMO Charter provides for a structure consisting of three (3) Units, namely, the

Compliance Unit, the Advisory and Training Unit, and the Procurement

Reference Unit. Although the functions of the Advisory and Training

Unit are well provided, it appears that the division of work between the

Compliance Unit and the Procurement Reference Unit may be

improved further. The reason for this is that, as provided, the

Compliance Unit would have to be responsible for all functions

pertaining to the supervision and monitoring of suppliers, contractors

and consultants, the supervision/authorization and monitoring of

bidding activities, the collection and recording of statistics on public

procurement, and the review of complaints. On the other hand, the

Procurement Reference List Unit would only have to be responsible for

the creation of reference lists. Moreover, a danger of a conflict of

interest may arise if the recording, monitoring,

supervision/authorization and review powers are all given to one unit.

As such, it may be recommended that the responsibilities of the

Procurement Reference Unit be expanded to include the monitoring of

bidding activities, as well as the collection and recording of public

procurement statistics, so that it now becomes a Procurement

Monitoring and Reference Unit; while the Compliance Unit retain its

supervisory/authorization and review functions. For obvious reasons,

the staffing complement for each of these units would have to be

increased to perform their functions properly. For example, the

Advisory and Training Unit should be properly staffed with lawyers and

trainors, so that the former would be responsible for drafting legal

opinions, while the latter would be utilized to conduct continuous

regional trainings and capacity building sessions. The Advisory and

Training Unit should also have a regular phone-in “help desk” to

answer telephone queries. By experience, these phone-in queries tend

to increase once the regular regional training program comes into full

swing.

b. Professionalize Public Procurement (to improve results in Indicators 5

and 6). Although the PrMO has already undertaken an information drive on

the new Procurement Decree, there is a need for a sustainable procurement

training program to be conducted regularly by experts from, or tapped by, the

PrMO Advisory and Training Unit. This program should not only target GOL

officials involved in procurement, but also private suppliers, contractors and

consultants. It would be ideal for GOL to develop a course for government

officers, employees, and even private contractors, covering all aspects of

project management and government procurement, including project and

procurement planning, IFI guidelines, the budget cycle, public contracts, and

dispute resolution, among others; but this initiative would be best indicated as

a medium or even long term objective. In the meantime, it would suffice for

the GOL to develop a short procurement training program which may run from one (1) to two (2) days, covering the following critical topics:

? General Principles of Procurement

?GOL Regulations on Procurement of Goods

?GOL Regulations on Procurement of Civil Works

?GOL Regulations on Hiring of Consultants

?IFI Guidelines, such as those of the World Bank, ADB and Japan Bank for International Cooperation (JBIC)

This short procurement training program may in fact be developed into a Public Procurement Training Certificate Program for all GOL officers and employees involved in the procurement process, so that attendance at this program and the receipt of a certificate from PrMO would be a prerequisite for one to perform any procurement function (including membership in a Tendering Committee). This program would help in ascertaining that those involved in the procurement process are properly trained on, and understand, all applicable rules and regulations, and would also help minimize the need for external consultants. On a related matter, due to the fact that several participants of the pervious procurement training sessions were not necessarily involved in the procurement process, the objectives and advantages of these sessions were not fully achieved at the procuring entity level. To avoid this from happening again, the PrMO should develop a list of targeted participants for the program, and strictly invite only those whose position classifications fall within the said list.

The outcome of the Public Procurement Training Certificate Program – even if initially undertaken for only one (1) year – would allow GOL to assess the capabilities and training needs of its procurement practitioners in the central and local governments, as well as in the provincial, district and project offices; and would thus aid in determining whether a full-blown public procurement course would be necessary. Needless to say, the operation of a “help desk” would complement the training program, because it would provide a venue for participants to raise follow-up queries after the sessions, particularly those that arise during actual operations. In order to reach all levels of the government bureaucracy, i.e. central, local, provincial and district levels, within a shorter period of time, especially given the current limited staffing complement of the PrMO, GOL may consider establishing regional composite teams of trainors, utilizing selected professors from local state-owned universities or colleges and budget officers within the pertinent region or province. However, given the abstruse nature of public procurement, it would be necessary to conduct an intensive training-of-trainors workshop/seminar for these composite teams before sending them to the regions or provinces. It would also be imperative for the PrMO to be present – at least during the first training sessions of the composite teams – in order to ensure that issues are being addressed properly. The PrMO would also have to keep the lines of the “help desk” open, as several queries are expected to pour in during the early stages of the regional training sessions, most coming from the trainors themselves. Finally, the PrMO should regularly monitor the performance of the composite teams in order to ensure the quality of their presentations.

c. Develop a Data Collection, Monitoring and Evaluation System (to

improve results Indicators 5, 6 and 11). Administrative systems and/or information databases on the following aspects of public procurement are absent in GOL:

?Procurement opportunities and awards (Indicator 5, Baseline a)

? National procurement statistics (Indicator 5, Baseline c)

?Quality control standards (Indicator 5, Baseline d)

?Public procurement operations and performance at the contracting entity level (Indicator 6, Baseline c)

?Recording and documentation of procurement and contract transactions at the contracting entity level (Indicator 6, Baseline e) ?Identified key data collected from the contracting entities to monitor national performance (Indicator 11, Baseline b)

?Relevant records to validate key data (Indicator 11, Baseline c) Although the project offices are replete with procurement records and data, these appear to be project specific, and there exists no system that can identify the key data required to generate the information necessary for proper

performance monitoring at both the national and line agency levels, generate the necessary procurement statistics, and report these to the central government. As an initial step towards developing a fully operational national and agency procurement information, monitoring and evaluation system, it is necessary to have a tool that:

1. Identifies critical indicators on agency procurement performance;

2. Specifies the standards or satisfactory thresholds that an agency would

have to meet for each of the performance indicators;

3. Identifies the key data that are linked with the performance indicators

and are thus needed to determine whether an agency meets the

satisfactory thresholds;

4. Identifies the relevant contract and public bidding data;

5. Identifies the documents relevant for gathering the key data;

6. Guides the evaluator on the appropriate steps to take when conducting

a procurement performance evaluation; and

7. Is sufficiently linked to the BIS, so that a comprehensive picture may be

had, covering both the national and agency levels of procurement.

Attached hereto as Annex “C” is the Lao PDR Public Procurement Measurement Tool with Agency Performance Indicators (API), which was developed with the above-enumerated elements in mind.

d. Establish Permanent Tendering Committee Secretariats (to improve

results in Indicator 6). Regardless of how well developed a data collection system may be, it would be of no practical use if there existed no permanent office in the line agencies to serve as the focal point where all the relevant data may be gathered and found. The BIS assessment reveals that line agencies tend to have ad hoc Tendering Committees and procurement offices, as procurements are generally project based, and officers in these agencies do not know, or have not identified, the specific office/s that would have to take custody of all relevant records and documents. It is recognized that Tendering Committees are usually ad hoc, as these consist of mid-level to high-level officials who perform other functions. The same may be said about technical working groups, because their members are experts who are usually drawn from other offices regularly involved in the type of project or procurement concerned. Given this scenario, it thus becomes vital for a procuring entity to have at least one permanent office that:

1. Takes custody of procurement documents and keeps all the records for

all activities relevant or related to procurement;

2. Is responsible for the sale and distribution of bidding documents to

interested bidders;

3. Provides administrative and secretariat support to the Tendering

Committee and technical working groups;

4. Assists in managing the procurement processes;

5. Monitors procurement activities and milestones for proper reporting to

the proper central government agencies, such as the PrMO and the

SIA;

6. Functions as the focal point in the procuring entity concerned for

purposes of implementing the professionalization program therein; and

7. Serves as the central channel of communications for the Tendering

Committee with the end users, the Project Management Offices, other

units of the line agency, other government agencies, the bidders, and

the general public.

The requirement for the creation of this office or unit would have to be provided in an executive order or decree. It may be referred to as the Tendering Committee Secretariat, and the head of the agency may either create it as an entirely new office/unit or simply reorganize an existing office/unit and designate it as such. It would be very difficult to conduct an agency procurement performance evaluation without a procurement records system managed by a permanent office therein.

e. Provide Adequate International Standards for Technical Specifications

(to improve results in Indicator 1). Although GOL’s legislative framework achieves satisfactory ratings for majority of the Baselines under Indicator 1

(the country’s procurement legislative and regulatory framework complies with applicable obligations deriving from national and international standards), thus attaining a score of ninety-two percent (92%), complaints have been received by the PrMO regarding unclear specifications and high standards for goods procurement. Complaints have also been raised to PrMO about high qualification requirements for civil works projects. These have been observed especially for projects covered by foreign funding. These issues may be addressed through the use of Standard Bidding Documents, preferably harmonized with IFIs such as the World Bank, ADB and JBIC, and by strictly monitoring the use of technical specifications, particularly for sensitive procurements, to ensure that the practice of “tailor fitting” or brand preference is avoided by line agencies and project offices. This should also be complemented by an intensive information campaign on the matter, which may coincide with the Public Procurement Training Certificate Program recommended above.

Article 11 (Two-Stage Bidding) of the Procurement Decree IRR, would also have to be revisited, because it allows the procuring entity to negotiate with potential bidders (prior to the second (2nd) stage) on the content of submitted initial offers, keeping confidential the content said negotiations. This seems to run counter to the concept of a sealed bidding, and the principles of equity and transparency – even for a two-stage bidding procedure – because it allows a bidder to improve its bid even before the Tendering Committee releases the revised technical specifications during the second (2nd) stage. In fact, under two-stage bidding procedures in IFI procurement guidelines, the procuring entity is only allowed to request for clarifications from bidders on their technical submissions, but not to negotiate on these.

f. Issue Standard (Harmonized) Bidding Documents and Generic

Procurement Manuals (to improve results in Indicators 2 and 7).To complement the public procurement professionalization program, it is recommendatory to issue Standard Bidding Documents and Generic Procurement Manuals, because these would ensure that all agencies and offices use the same procurement formats and follow the same guidelines. A single set of procurement documents would also minimize confusion on the part of both the procuring entity and the bidder, because standard templates would then be utilized throughout the entire bureaucracy for all public procurement activities. Since GOL is close to issuing its Procurement Manuals, it may also be pointed out that these manuals and the Standard Bidding Documents are excellent avenues for harmonizing the operational policies and procedures among the National Competitive Bidding (NCB) procedures of GOL, ADB, JBIC and the World Bank. It should be remembered that harmonization efforts began as a response to the increasing concerns about high transaction costs, fragmentation of administrative capacity, and reduction in aid effectiveness caused by the multiplicity of the donor institutions’ operational policies, procedures and practices. Given this background, as the Procurement Decree is the embodiment of Lao PDR’s’ efforts to introduce best practices into its public procurement framework, it has the effect of bringing GOL’s procurement process much closer to those of the IFIs, whose procurement operations are based on currently accepted best

practices. Therefore, the next logical step would then be to initiate harmonization of GOL’s procurement rules with the IFIs, e.g. the World Bank, ADB and JBIC. Lao PDR may be a ripe environment for harmonization efforts, given the new legislative framework of GOL, the fact that Standard Bidding Documents and Generic Procurement Manuals would still have to be issued, the IFIs’ commitment to undertake harmonization efforts that are adapted to the country context, the IFIs’ support for country-led efforts in this area, and the acknowledged need for collaboration to ensure that new or revised policies are harmonizable with those of the partner countries and donor institutions. It would thus be advisable for GOL to begin studying the possibilities for harmonization.

g. Undertake Proper Planning and Require a Certification on Availability of

Funds (to improve results in Indicators 3 and 7). Although agencies are required to submit Annual Procurement Plans (APPs) as bases for budget requests, a strong link between the APP, the budget, the actual procurement and spending does not exist. This is revealed by findings on a persistent insufficiency of local funds for contracts, and the constant reallocation of budgets for procuring entities during the fiscal year. This means that there is

a strong possibility that funds already appropriated for particular projects or

contracts at the start of the year may no longer exist when the time for payment arrives, particularly for those sourced solely from national funds.

Although the root of this problem may be traced to a need for budgetary and revenue collection/generation reforms, some solutions may also be provided on the procurement side. In particular, while appropriations based on APPs certainly have to exist before a procurement action is initiated, it should be noted that APPs tend to be submitted merely to comply with budgetary requirements, and are oftentimes not regarded as tools for efficient implementation, monitoring and evaluation. As such, in reality, the estimates indicated therein may not actually reflect prevailing market prices, but may rather contain inflated figures that take into account the eventuality of a decrease in budget allotments due to reallocations. The importance of the APP cannot be over-emphasized, because proper planning allows a procuring entity to schedule its procurements, determine its budgetary requirements for specific projects within a given period and check whether it has exceeded its spending limits for the same periods. As long as a procuring entity develops its procurement plan in line with its budgetary estimates; and provided that these estimates are not unduly inflated or based merely on historical data, but are actually validated with existing market prices; and provided further that the procuring entity remains faithful to its procurement plan during the calendar year, it would be able to maintain that critical link between spending and budgeting, for it is planning that integrates these two concepts.

Another important aspect to consider is that contracts tend to be signed regardless of whether or not actual funds exist to support these. During the assessment, it was discovered that a procuring entity is authorized to execute

a contract as long as an appropriation exists to cover it. As such, before

contract signing, the procuring entity only has to make a determination whether a line exists in the appropriations law for the relevant project. Based on the scenario described above regarding insufficiency of funds and the

practice of reallocating budgets for line agencies, it becomes apparent that a simple check on line appropriations would not suffice to ensure that funds exist for government contracts, particularly those covered by national funds.

In fact, it has been reported that substantial delays in contract payments for nationally funded projects are a common occurrence in Lao PDR, because funds simply do not exist when needed. This also leads to the practice of procurement based on credit. The ultimate effects of such a practice are that suppliers and contractors are discouraged from participating in nationally funded projects, and that prices quoted by the private sector tend to be much higher than prevailing market prices, due to interest considerations for delayed payments. One immediate solution that may be recommended for this particular issue is the requirement for a certification of funds availability to be issued by the procuring entity’s accounting officer as a prerequisite to contract execution/signing. This would instill some form of discipline upon contracting officers, so that no contract would be awarded and signed without ascertaining that funds actually exist therefor. In fact, a safer approach would be to require such a certification before bidding. Although the immediate effect of a certification requirement may be delays in contract execution or the postponement of procurement/bidding activities, it would eventually have the effect of instilling some form of self-discipline upon procuring entities in the preparation of budget estimates (as budget officers would be motivated to reflect estimates that are both realistic and attainable), in the procurement process, and in contracting. Moreover, this would eventually lessen the incidence of, or the period of, payment delays, as well as the incidence of procurements based on credit, so that more suppliers and contractors would be encouraged to participate in nationally funded projects and price quotations may be more reflective of prevailing market prices.

h. Encourage a more Pro-active Participation from the National Audit

Agency (to improve results in Indicator 9). At present, most GOL projects and procuring entities utilize private external auditors whose scope of audit depend upon agreed Terms of Reference. Although GOL has a National Audit Agency, its reach is limited and it usually only reviews a procurement activity when a problem arises. It is advisable for GOL to increase the involvement of the National Audit Agency so that audits of procurement activities and contracts are undertaken on a regular basis, and so that contracts that do not conform to existing procurement, accounting and audit regulations are readily disallowed. With this, the dependence of GOL on private external auditors may be lessened, and confidence on government external auditors may be encouraged – especially given that the procurement, accounting and auditing standards of the public sector are dissimilar to those of the private sector. Moreover, the regular presence of government field auditors in procuring entities has proven to be very effective in checking the occurrence of fraudulent or grossly disadvantageous transactions. Their position and authority in the procuring entity also makes them a crucial partner of the PrMO, because they have immediate access to needed records and documents, and can provide unbiased findings on transactions and contracts therein. As such, it would also be advisable for PrMO to establish a partnership with the National Audit Agency on this regard. It is also recommended that PrMO conduct a focused public procurement training

program for government field auditors, to ensure that they have a common understanding of the new law. To strengthen procurement monitoring, it would also be advisable for SIA to be included in this partnership, by reason of its role in detecting fraud and corruption in procurement transactions, and due to the fact that it is tasked with monitoring the management performance of government agencies.

i. Enhance Competition at the Contracting Entity Level and Establish

Blacklisting Mechanisms (to improve results in Indicators 7 and 12).

Field interviews have shown that competition in the provincial and district offices is much less than at the central level, because selection tends to be limited to suppliers and contractors within the locality, where only an average of three (3) to five (5) bidders participate. Moreover, selection tends to constantly involve the same list of suppliers or contractors. It was also reported that, in some instances, awards were made to bidders who did not necessarily submit the lowest bids. These practices were particularly observed for nationally funded contracts, and are prone to favoritism, collusion among the limited suppliers or contractors, and highly priced offers and awards. The problem is compounded by the absence of any blacklisting mechanism in the provinces and districts, so that even if a favored supplier or contractor defaults in its contract obligations, or performs in an unsatisfactory manner; its contract would not be terminated, nor would it be barred from future contracts. Rather, the existing contract is allegedly merely extended to allow the defaulting supplier or contractor to perform the contract. It may be noted that all the recommendations already mentioned would have a positive effect on enhancing competition and transparency at the contracting level.

However, the following may still be suggested:

1. Strictly enforce Article 8 (4) of the Procurement Decree IRR, dealing

with approvals for Direct Contracting and Limited Bidding;

2. Open procurement at the provincial and district levels to national

competition;

3. Lessen the threshold value for Limited Bidding, or entirely strike out all

provisions in the Procurement Decree and its IRR that provide for a

threshold value for Limited Bidding, such as Article 8 (1) (a) and the

relevant portion of Article 13;

4. Explicitly prohibit the head of any procuring entity to be the head or

member of the Tendering Committee; and

5. Establish and strictly implement a national Blacklisting mechanism for

suppliers, contractors and consultants.

Medium Term Recommendations

j. Follow-through on Professionalization (to improve results in Indicators 5 and 6). As discussed above, after a one (1) year run of the Public

Procurement Training Certificate Program, it would be advisable for GOL to assess the capabilities and training needs of its procurement practitioners in the central and local governments, as well as in the provincial, district and project offices, to determine the practicability of developing a full-blown public procurement course.

k. Follow-through on Harmonization and Pilot-testing (to improve results in Indicators 2 and 7). It was mentioned above that the Procurement Manuals and the Standard Bidding Documents are excellent avenues for harmonizing GOL procurement rules and regulations with IFI procurement guidelines for National Competitive Bidding (NCB) procedures, such as those of the World Bank, ADB and JBIC. As such, it may be appropriate for GOL to incorporate harmonized provisions in these documents and pilot test these with identified line agencies and local government units undertaking IFI funded projects.

l. Develop a Website for PrMO (to improve Indicator 5). Once sufficiently reorganized and staffed, GOL may begin efforts towards developing a simple website whereby basic information about national and local procurement information are posted and shared, such as tender invitations, requests for proposal, contract award information, and the blacklist of suppliers, contractors and consultants. This website would have to be managed by the PrMO, and the PrMO would need to have a staff dedicated to this initiative.

This would be the first step towards introducing an Information Technology (IT) initiative for GOL procurement, as a full-blown e-procurement system is not recommended at this time. It should be kept in mind that most IT initiatives – e-procurement included – cannot exist independently of, and would thus require, the necessary legislative, institutional and administrative frameworks. For this reason, if GOL were to undertake an e-procurement program, the recommended approach would have to be one that:

1. Ensures that the procurement regulations are such that they allow

adaptations to improvements in modern technology;

2. Establishes the necessary institutional frameworks, and administrative

and manual systems and procedures;

3. Ensures proper linkages with other systems that may interact with the

procurement process, such as financial management information

systems and logistics management systems;

manual operations; and

parallel

4. Allows

5. Is unhurried in a deliberate and careful manner, to allow room for errors

and improvements.

m. Require the Posting of Contract Awards (to improve results in Indicators 5, 7 and 10). Issuing an executive order or decree requiring the posting of contract awards is a step that would complement efforts at developing a data collection and monitoring system, and at strengthening the linkages among planning, budgeting, procurement and spending – by incorporating

transparency in the entire contracting process. Exposing contract awards to public scrutiny would make it easier for both the private and public sectors to compare the prices of similar procurements undertaken by different procuring entities, and to ultimately evaluate the effectiveness of Lao PDR’s procurement reform program, i.e. whether it is able to procure quality goods and services at the most economical prices. For this reason, it would also encourage procuring entities to seek out and award contracts at reasonable prices. However, while issuing the relevant order or decree may not be difficult, enforcing it may prove to be more challenging, especially without a fully integrated data collection and monitoring system and a strong audit and control system within the procuring entity concerned. Due to the fact that the posting of contract award notices is a step that would necessarily have to come after the entire procurement process is undertaken and after critical decisions have been made, it would be easy to overlook or overstep, and difficult to enforce and monitor manually without the full cooperation of the procuring entity concerned. As such, experience has shown that a successful implementation of this requirement would require contract award notices to be linked electronically to bid notices and price estimates for individual contracts, so that red flags are raised and transmitted to the PrMO (and possibly the SIA and National Audit Agency) if an award exceeding a percentage of the original estimate is made. Although an e-procurement system is not being recommended at this point, it would still be advisable to issue a requirement for the posting of contract award notices, so that any consideration for an IT system may incorporate this requirement, and so that the appropriate legal basis exists with a sufficient level of awareness once the system is developed and ready for implementation.

n. Strengthen the Internal Audit and Control System within Line Agencies and Local Government Units (to improve results in Indicators 6 and 9).

Although the assessment has shown that some agencies have created internal audit units, several of these existing units only function when a problem arises and that, at times, these units are not properly situated, e.g.

the internal audit unit is established under the same department as the finance division, which thus creates a situation for a conflict of interest.

Moreover, the organizational structures of some agencies may not support sufficient separation of the functions of authorization, recording and custody of assets within the procurement process. Therefore, it is advisable for GOL to conduct a mapping of its internal audit and control, develop generally accepted internal audit and control standards, and craft an internal audit and control manual and model that provides, among others, for the proper organization and institutional frameworks, and for audit functions that go beyond mere financial audits. Once developed, the manual and model would have to be pilot tested in selected line agencies and local government units (preferably the same agencies selected for the pilot testing of the harmonized manuals and documents) and properly adjusted.

o. Develop a Procurement Records and Management System for Procuring Entities (to improve results in Indicators 5, 6 and 11). To support the Data Collection, Monitoring and Evaluation System recommended above, a Procurement Records and Management System for line agencies and local

government units would have to be developed and pilot tested in selected agencies (preferably the same agencies selected for the pilot testing of the harmonized manuals and documents, and the internal audit and control manual). This system would ensure that the records and documents needed at the contracting entity level exist for appropriate data collection, monitoring and evaluation at the central level. It is suggested that the permanent Tendering Committee Secretariats recommended above be utilized for this purpose.

p. Support the Development of a Pro-Active Civil Society (to improve results in Indicator 12). To increase the transparency of GOL’s procurement system and improve its credibility to the private sector and the international community, it would be advisable for the PrMO to support initiatives toward increasing the participation of civil society in procurement activities, such as:

1. Endorsing the inclusion of provisions in the Procurement Decree or its

IRR on the participation of private associations and civil society

organizations (CSOs) in public biddings as observers;

2. Creating venues to galvanize public opinion on ways to improve

transparency, accountability and equity in the procurement process,

and forming partnerships with credible CSOs to build on these

principles; and

3. Developing training programs for CSOs, as part of its capacity building

efforts.

Long Term Recommendations

q. Fully Utilize the Harmonized Procurement Manuals and Standard Bidding Documents (to improve results in Indicators 2 and 7). After pilot testing the harmonized Procurement Manuals and Standard Bidding Documents, and incorporating the necessary adjustments thereto, PrMO would have to ensure that these are used in all procuring entities of GOL, by officially issuing and disseminating these documents to take the place of the previously issued Procurement Manuals and Standard Bidding Documents; by developing training programs or sessions on the harmonized Procurement Manuals and Standard Bidding Documents, to be integrated with the professionalization program; and by monitoring the use of these manuals and documents.

r. Fully Implement the Internal Audit and Control System (to improve results in Indicators 6 and 9). Once the Internal Audit Manual and Model have been successfully pilot tested and adjusted, GOL would have to ensure that these are properly adopted and applied by line agencies and local government units. For this purpose, in addition to disseminating these documents nationwide, it may be best to design, develop and implement a national training and certificate program for government internal auditors.

中国政府采购网采购公告发布管理系统操作手册

中国政府采购网采购公告发布管理系统操作手册 第一部分:用户注册 在中国政府采购网通过自助方式发布采购公告的单位,需先进行用户注册。注册步骤如下: 一、登录中国政府采购网首页,点击“采购公告发布管理系统”链接,进入“中国政府采购网采购公告发布管理系统”首页,然后点击“注册”按钮(图1): 图1 二、在“选择用户类别”中,点击“标讯自助用户”(图2)。 图2 三、填写单位信息,其中:单位名称必须填写单位全称。然后,

点击“保存并进入下一步”(图3)。 图3 四、填写发布用户信息。点击“添加”按钮,弹出“添加用户”窗口;用户信息填写完毕后,点击“添加用户”按钮进行保存;用户添加完毕后,点击“保存并进入下一步”按钮(图4)。 其中: 1、一个单位最多可注册5个用户名;这5个用户名可以一次性添加,也可以先添加一部分进行注册,余下名额另行注册。 2、用户信息务必填写真实、有效的信息,以便本网能及时与采购公告发布人取得联系。 图4

五、打印注册表。按图片提示完成打印,然后点击“保存并进入下一步”按钮(图5)。 图5 六、网上注册已经完成,请按屏幕提示提交书面材料,并等候本网审批。审批通过后,用户方能登录系统(图6)。 图6 第二部分:系统登录及各模块操作 一、系统登录 登录中国政府采购网首页,点击“采购公告发布管理系统”链接,进入“中国政府采购网采购公告发布管理系统”首页,输入用户名、密码和验证码,点击“登录”按钮,即可进入采购公告发布管理系统

进行各项操作(图7)。 图7 登陆系统后,如果提交的信息不符合发布要求被退回,系统会弹出“您有n条自助标讯被退回,点击确定进行查看,点击取消停在当前页面”的提示信息。如果没有对退回信息进行修改,该提示在下次登陆时还会弹出,直到该退回信息被处理后才会取消(图8)。 图8 二、标讯信息维护 (一)添加新标讯

北京市2016-2017年政府采购集中采购目录及标准

北京市2016-2017年政府采购集中采购目录及标准 根据《中华人民共和国政府采购法》,结合北京市具体情况,现制定北京市2016-2017年政府采购集中采购目录及标准如下: 一、集中采购机构采购项目 凡纳入集中采购目录的项目均必须按规定委托集中采购机构采购。以下目录按照财政部《政府采购品目分类目录(试用)》制定。

二、部门集中采购项目 部门集中采购项目是指部门或系统有特殊要求,需要由部门或系统统一配置的货物、工程和服务类专用项目。部门集中采购可以共享中央主管部门的协议采购招标结果。 救灾物资、病虫害防治物资和设备、农用机械设备、警用设备和用品、教材和专用教学设备、消防装备、特种专业技术用车(指警用特种车、消防用车、环保用车、医疗用车等专业技术车辆,但集中采购目录中的载货汽车、乘用车、客车除外)、文化活动、城市规划编制、云计算服务原则上应当实行部门集中采购,具体项目由主管部门确定。 三、分散采购及限额标准 除集中采购机构采购项目和部门集中采购项目外,各部门采购单项或批量金额达到50万元以上(含50万元)的货物和服务项目、100万元以上(含100万元)的工程项目应执行《中华人民共和国政府采购法》和《中华人民共和国招标投标法》有关规定,实行分散采购。 四、政府采购公开招标数额标准 采购公开招标数额标准以上的项目,必须采用公开招标的方式。因特殊原因需要采用公开招标以外的采购方式的,应当在采购活动开始前获得本级政府采购监督管理部门的批准。公开招标的具体数额标准如下: (一)货物或服务类:单项或批量采购金额一次性达到

200万元以上(含200万元)。 (二)工程类:按照北京市有关规定执行。 五、执行政府采购政策功能的有关规定 政府采购原则上应当采购本国货物、工程和服务,扶持监狱企业和中小企业发展,支持节能减排、环境保护。

政府采购管理信息系统

摘要 随着社会信息化的发展,社会上很多事务的管理也跟着相应发生了根本的变化,府采购行为、优化财政支出管理,各级政府纷纷以立法形式推行政府采购制度的实施,使采购的方式、程序和采购合同的履行等市场行为得以规范。同时,随着“政府上网工程”的进一步深入,政府部门相继在网上建立站点,并提供信息共享和便民服务的应用项目。 工欲善其事必先利其器。采购一套专门处理政府物资采购的网络办公系统———政府采购管理信息系统,可谓恰逢其时。 应用政府采购管理系统以后,一方面通过交互式动态网站建立了便民服务的窗口,不仅能及时发布各种信息,还允许供应商进行网上登记和注册。 另一方面,无纸的“绿色办公”得以实现,部门办公效率明显提高,同时由于采用“公平、公正、公开”的电子招投标,使更多供应商参与竞争,大大降低了采购成本。 在将来, 政府采购管理信息系统将得到全面系统的应用,实现了包括公开招标、邀请招标、竞争性谈判、询价以及定点采购等方式在内的各种采购方式流程的处理,全面满足政府业务需要。 同时,系统对网上发布公开招标公告、供应商在线注册和网上竞价等功能的支持也对当前新兴的政府网络采购提供了一个完善而系统的借鉴。 关键字:Dreamweaver; ACCESS; ASP

ABSTRACT Along with the development of social informationization, society a lot of business of management also followed to correspond occurrence root of variety, mansion purchase behavior, excellent turn public finance expenditure management, the all levels government promote a government procurement with the lawmaking form in succession system of implement, make purchase of implement of way, procedure and purchase contract etc. market behavior can norm.In the meantime, along with"the government get to the Internet engineering" of further thorough, government section successive on the net establishment station point, and provide an information share and conveniences for citizens service of application item. The work desire kind its matter the benefit its machine necessarily and first.The purchase is a set of specialized processing government supplies purchase of the network transact system-government procurement management information system, it may be said and in chance encounter it hour. Application government procurement management system after, on the other hand pass to hand over with each other a type dynamic state a website establishment conveniences for citizens service of window way, not only ability release various information in time, return allow supplier to carry on a net top to register and register. On the other hand, have no paper of"green transact" can realization, the section transact an efficiency obvious exaltation, in the meantime because of adoption"fair, fair, public" of the electronics recruit to bid, make more supplier participate competition and consumedly lowered purchasing cost. At future, government procurement management the information system will get overall system of application, realization include public invite bids, invitation invite bids, the competition negotiation, inquiry and fixed-point purchase etc. way at inside of various purchase way process of processing, overall satisfy government business demand. In the meantime, system to the net release public invite bids to announce, the supplier be on-line register and on-line Jing price etc. function of support also rightness current newly arisen government network purchase provided one perfect but draw lessons from of system. Key word: Dreamweaver; ACCESS; ASP

政府采购中各流程时间期限的规定整理稿

政府采购中各流程时间期限的规定 罗金生(整理) 关键词:工作日(不包括节假日),日(自然天,包括节假日)。 1.提交资格预审申请文件的时间:自公告发布之日起不得少于5个工作日。 《政府采购法实施条例》第二十一条:采购人或者采购代理机构对供应商进行资格预审的,资格预审公告应当在省级以上人民政府财政部门指定的媒体上发布。已进行资格预审的,评审阶段可以不再对供应商资格进行审查。资格预审合格的供应商在评审阶段资格发生变化的,应当通知采购人和采购代理机构。 资格预审公告应当包括采购人和采购项目名称、采购需求、对供应商的资格要求以及供应商提交资格预审申请文件的时间和地点。提交资格预审申请文件的时间自公告发布之日起不得少于5个工作日。 2.邀请招标时资格预审公告期限:不少于7个工作日。 《招标投标法实施条例》第十七条:依法必须进行招标的项目,提交资格预审申请文件的时间,自资格预审文件停止发售之日起不得少于5日。”换句话说自资格预审文件发售之日起到资格预审申请文件递交截止日时间不得少于10日。 3.邀请招标时投标人提交资格证明文件的期限:资格预审公告期结束之日起3个工作日前。 《政府采购货物和服务招标投标管理办法》第十五条:采用邀请招标方式采购的,招标采购单位应当在省级以上人民政府财政部门指定的政府采购信息媒体发布资格预审公告,公布投标人资格条件,资格预审公告的期限不得少于7个工作日(问题2)。 投标人应当在资格预审公告期结束之日起3个工作日前(问题3),按公告要求提交资格证明文件。招标采购单位从评审合格投标人中通过随机方式选择3家以上的投标人,并向其发出投标邀请书。 4.单一来源采购唯一供应商公示期限:不得少于5个工作日。 《政府采购法实施条例》第三十八条:达到公开招标数额标准,符合政府采购法第三十一条第一项规定情形,只能从唯一供应商处采购的,采购人应当将采购项目信息和唯一供应商名称在省级以上人民政府财政部门指定的媒体上公示,公示期不得少于5个工作日。 5.招标文件提供的期限:自招标文件发出之日起不少于5日。 6.澄清或修改招标文件的时间期限:在投标截止时间15日前作出。 《政府采购法实施条例》第三十一条:招标文件的提供期限自招标文件开始发出之日起不得少于5个工作日(问题5)。 采购人或者采购代理机构可以对已发出的招标文件进行必要的澄清或者修改。澄清或者修改的内容可能影响投标文件编制的,采购人或者采购代理机构应当在投标截止时间至少15日前(问题6),以书面形式通知所有获取招标文件的潜在投标人;不足15日的,采购人或者采购代理机构应当顺延提交投标文件的截止时间。 《政府采购货物和服务招标投标管理办法》第二十七条:招标采购单位对已发出的招标文件进行必要澄清或者修改的,应当在招标文件要求提交投标文件截止时间15日前(问题6),在财政部门指定的政府采购信息发布媒体上发布更正公告,并以书面形式通知所有招标文件收受人。该澄清或者修改的内容为招标文件的组成部分。 7.延长投标截止时间和开标时间的期限:投标截止时间3日前作出。

政府采购工作计划(doc 6页)

政府采购工作计划(doc 6页)

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