PUBLIC PROCUREMENT INTERNATIONAL BEST PRACTICES and DONOR-ASSISTED PROCUREMENTS Public Financial Management Reform Program ADB Grant 0133 -CAM 22 June 2010
Agenda Introduction and Workshop Objectives Overview: Public Procurement Objectives Management of the System Accountability and Good Governance International Best Practices for carrying out public procurements under a fully-developed, well-functioning public procurement system - - Step-by-Step Procedures Carrying out Procurements financed by the State budget, and under the direction of MEF and DPP (in the Khmer language) Procurement Sub-Decree No. 105 dated 18 October 2006 SOP/PM for Donor-Financed Projects Procurement Sub-decree No. 14 dated 2007
Agenda (continued) Oversight, Good Governance and Accountability Case Studies (time permitting) Closing
Introduction and Objectives In December 2004, the Royal Government of Cambodia, through MEF, desired the establishment of an effective and efficient PFM system with a 10 -year planning and implementation period. As a part of these longer-term reforms, the PFM in Rural Ministries Project, financed by ADB Grant 0133 -CAM, aims to strengthen the capabilities of procurement officials the three rural development ministries, MAFF, MRD and MOWRAM
Components: Grant Program Component 1: Improve Public Financial Management Capacity in Rural Development Ministries Component 2: Strengthening Capacity for Internal Auditing Component 3: Strengthening Debt Management Component 4: Strengthening the Effectiveness of the National Audit Authority
Workshop Objectives The Procurement Component of the Public Financial Management Reform Program (PFMRP) will support training and capacity building: - In all procurement related matters under the deconcentrated procurement sub decrees for procurement under national budget in MAFF, MRD, and MOWRAM; and - To assist MAFF, MRD and MOWRAM to ensure efficient functioning of their procurement system; raise awareness of the need to comply with SOP/PM procedures among senior officials of EA through workshops and seminars; and update the SOP/PM
Overview of Public Procurement Public vs. Private Procurement Management of the Public System Accountability
Public procurement is the use of public funds to acquire needed public goods and services The primary objective of a fully-developed, well-functioning public procurement system is to acquire these goods and services at fair and reasonable prices. Social objectives; such as to ensure the growth and development of Cambodian suppliers, consultants and other service providers, are secondary objectives.
A system that consistently acquires needed public goods and services at fair and reasonable prices is one indicator that it is well-functioning and wellmanaged. Another indicator is free and open competition among private sector firms who have confidence in the fairness and integrity of the system Fraud, waste and abuse will be minimized
Accountability helps to ensure the system is answerable for its actions: Role of Internal Audit: General Inspectorate External Audit: Supreme Audit Institution Other checks and balances: Stakeholders
Cambodia’s Current Public Procurement System As yet, Royal Government of Cambodia does not have a deeply-rooted public procurement law The regulatory framework consists of Sub-Decrees and Amendments, easily changeable Procurements and Privately-financed Build-Own. Operate (BOT) Projects are grouped together Accordingly, as one of the first steps to procurement reform, Cambodia may wish to consider expediting the legal and regulatory framework to facilitate the capacity building and institutional development initiatives being undertaken
Cambodia’s Procurement Regulatory Framework Procurement Sub-Decree No. 105 dated October 28, 2006; Procurement Sub Decree dated June 8, 1995; Procurement Sub-Decree No. 14 dated February 26, 2007; Implementing Rules and Regulations Governing Public Procurement (IRRPP), amended on September 2, 1998; Draft Implementing Rules and Regulations on Public Procurement and Procurement Manual for Goods, Works and Services (to be approved); Procurement Manuals for Externally Financed Projects/Programs in Cambodia (Vols. 1 -3) dated September 2005; Prakas No. 45 on the Implementation on Deconcentralization for Public Procurement dated January 31, 2005; Instructive Circular on Procurement Planning Guidelines No. 12 dated December 7, 2006 Supplementary Instructions of Prakas No. 319 on Rules and Regulations of Public Procurement dated 31 August 1995
Effectively Three Systems Procurements financed by the State Budget Donor-Supported Procurements (SOP/PM) Independent Procurement Agent (IPA) Significant capacity building needs Procurement officials are (or appear to be) assigned routine administrative work, without decision-making authority (PRC) Government not yet able to decentralize the procurement function due to capacity deficiencies
MEF awarded contract to Independent Procurement Authority (IPA) to carryout World Bank-financed procurements on behalf of the Government. At some point in the near future, the ministries will be required to assume these IPA duties (approx 200 procurements/year)
PFM Reform Program: Roadmap of Procurement Assistance to Royal Government of Cambodia Focused on 3 rural development ministries Training and capacity building in all procurement related matters under the deconcentrated procurement sub decrees for procurement under national budget and within the scope of SOPs and PM
On-the-Job (OTJ) Training Mentoring/Coaching: National and International Procurement Specialists will work directly with the three ministries to help problem solve Specific objectives on the following slides
Strengthen capacity in procurement planning and monitoring and assisting in preparing the Annual Procurement Plan and the Project Procurement Plan; Strengthen capacity to monitor and evaluate the performance of the public procurement system; Clarify lines of accountability within the procurement process, including effective oversight guidelines and identify key internal controls in budget execution
Strengthen the capability to monitor and evaluate procurement progress and conformance procedures and in preparing regular procurement reports to MEF and other agencies; Update databases on procurement status and use procurement website to post information on procurement processes and contract awards; and Establish good practices to ensure efficient functioning of the PRCs.
Implementation Structure
International Best Practices International Best Practices: Step-by-Step Procedures Following Slide Shows the Cornerstones of a fullydeveloped, well-functioning system
Procurement Cornerstones 1. COMPETITION: The primary purpose of a fullydeveloped, well-functioning public procurement system is to acquire needed public goods and services at fair and reasonable prices. This objective can most effectively be achieved through free and open competition. The first step to maximize free and open competition is through widelycirculated public advertising which opens-up and instills greater confidence in the procurement process, encourages more contractors to compete for government contracts, and results in overall lower tariffs for the benefit of the public and all users.
Procurement Cornerstones 2 2. TRANSPARENCY: Transparency enables everyone to understand the Government’s objectives and the precise methods to be used to attain them. A transparent public procurement process requires (a) the "rules of the game" to be made available to all participants and (b) the "game" to be followed in accordance with those rules.
Procurement Cornerstones 3 3. FAIRNESS: Capable, responsible contractors will compete for government contracts only if they have confidence in the fairness and integrity of the overall process; i. e. , all participants are treated fairly and consistently over time and as between each other.
Procurement Cornerstones 4 ACCOUNTABILITY: Accountability is an essential element of good governance and ensures that the Government fulfills its fiduciary duty to the public in identifying, preparing, tendering and contracting for needed public goods and services.
Step-by-Step Procedures The following two charts graphically depict the stepby-step procedures for competitive tendering using international best practices.
Text: Step-by-Step Procedures Please refer to the 30 page handout which describes the step-by-step procedures
State Budget-Financed Procurements Carrying out Procurements financed by the State budget, and under the direction of MEF and DPP (in the Khmer language) Procurement Sub-Decree 105 dated 18 October 2006
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CMBUk. TI 4 sßab½n. RKb; RKgl. T§kmµsa. Far. N³ ma. Rta 17 Rks. Ygesdækic© nighir. BaØvtßú Ca “saßb½n. RKb; RKgl. T§kmµsa. Far. N³”. Rks. Ygesd ækic© nig hir. BaØ vtßúk. MNt; k. Mrit. Twk. R)ak; s. Mrab; Gnuvtþþ vi. FIsa. Rsþénl. T§kmµ erobc. Me. Kalneya)ayénl. T§kmµ nign. Itivi. FI l. MGiténl. T§kmµ s. Mrab; GnuvtþRsbe. TAtamb. Tb, BaØtþi. Edl man. Rsab; nig. Gnuvtþ GMNacdéTe. Tot 52
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ma. Rta 22 saßb½n. Gnuvtþl. T§kmµ Rt. Uve. FVIEpnkarl. T§kmµRbca. Mqña. Mrbs; xøÜ n ed. Im, Idak; CUn. Rks. Ygesdækic© nighir. BaØvtßú Binitü nig. Gnum½t en. Aed. Imqña. Msare. BIB½n§n. Im. Yy². ral; KMeragc. MNay. Edl Rt. Uv. Gnuvtþvi. FIsa. Rsþl. T§kmµsa. Far. N³ Rt. Uvkt; b. Ba©Úlkñúg. Epnkarl. T§kmµ. 55
ma. Rta 23 sßab½n. Gnuvtþl. T§kmµRt. Uvep. JIr)aykar. N ¾l. T§kmµRbca. MExmk. Rks. Ygesdækic©nighir BaØvtßúGMBI Tinñn½yénkic©snüa. Ta. Mg. Gs; r. Ym. Ta. Mgkargarvishm. CÆkarl. T§kmµ tam. KMr. Urbs; Rks. Ygesdækic© nig hir. BaØvtßú pþl; e. Gay. kñúgkr. NI Gak; xanmin)anb. Ba¢Ún. Tinñn½y. RKb; RKan; e TRks. Ygesdækic© nig hir. BØavtßú niwgmanvi. Fankarkdak; vin½ytam kar. Cak; Esþg. 56
CMBUk. TI 6 KN³kmµa. Fikark. MNt; buerlkçN³sm, tþi vayt. Mél nig. Rb. Kl; kic©snüa “Kbvb” ma. Rta 24 RKb; sßab½n. Gnuvtþl. T§kmµ Rt. UvbegáIt. KN³kmµa. Fikark. MNt; buerlkçN³sm, tþi vayt. Mél nig. Rb. Kl; kic©snüa “Kbvb” m. Yy. Edl. TTYlxus. Rt. Uv. Rt. Yt. Binitüel. IEpnkarl. T§k mµÉksardjéføkar pþl; Gnusasn¾ed. Im, IRb. Kl; kic©snüa kar. Gnuvtþkic©snüa nigpþl; Gnusasn¾b. Nþwgtva: . 57
ma. Rta 25 sma. Cik Kbvb Edl. Rt. Uv. Etgta. Mgeday. Rb. Fansßab½nman. GNtþi kargarry³e. Bl 2 qañM. GNtþien. H Gacbnþ)anry³e. Bl 1 qña. Me. Tot b: u. Enþmine. Gayel. Isry³e. Blsrub 3 qña. Me. LIy. sma. Cik Kbvb Edl)anb. Mer. Ikargarry³e. Bl 3 qña. Meh. Iyena. H Gac. Rt. Uv. Etgta. Mge. LIgvij)ane. Rkay. BIry³e. Bl ya: gticb. Mput 1 qña. M bnÞab; BI)anb. Ba©b; ry³e. Bl 3 qña. MCa sma. CIkrbs; Kbvb. sma. Cik Kbvb 58
ma. Rta 26 Kbvb. Rt. Uvmansma. Cik. GciéRnþy¾. Rb. Fan GgÁPa. Bl. T§kmµ“Gl”Rt. Uve. FVICaelxa. Fikarrbs; Kbvb si. T§dwkna. Mrbs; Kbvb Rt. Uvman. Rb. Fanm. Yyr. Ub Gnu. Rb. Fan. TI 1 m. Yyr. Ub nig. Gnu. Rb. Fan. TI 2 m. Yyr. Ub. si. T§dwkna. M rbs; Kbvb Rt. Uv. ERb. Yltamk. Mritént. Mélkic©l. T§kmµEdl nwgk. MNt; kñúg Gvbls, si. T§idwkna. M Kbvb Rt. Uv)ank. MNt; tamk. Mrit d. Ucxage. Rkam³ -l. T§kmµk. Mritx<s; ³ dwkna. Meday. Rb. Fan Kbvb Ca. Rb. Fansßab½n 59
ma. Rta 27 Kbvb man. Parkic©Rt. Yt. Binitüel. IskmµPa. Bl. T§kmµ mansi. T§yl; RBmel. Ir)aykar. N¾ vayt. Mélnig erobc. M cu. Hkic©snüatamn. Itivi. FI e. TAtamk. Mrit. Twk. R)ak; Edlnwgk. MNt; kñúg Gvbls, Kbvb Rt. Uve. FVIkars. Merc. Ca ÉkcänÞ c. Me. Ba. Hr)aykar. N¾vayt. Mél nigkarpþl; Gnusasn¾ ed. Im, IRb. Kl; kic©snüa. Gnu. Rb. Fan. TI 1 nig. Gnu. Rb. Fan. TI 2 Kbvb. Rt. Uv)anpþl; si. T§ied. Im, Icu. Hhtßelxakñúgn amsßab½n edayminca. M)ac; mankaryl; RBmel. Ikic©l. T§km 60
CMBUk. TI 7 t. Rm. Uvkarca. M)ac; s. Mrab; kic©l. T§kmµ ma. Rta 28 RKb; l. T§kmµTMnij s. MNg; esvakmµ nigesva. TIRbwk. Sa. Ta. Mg. Gs; Rt. Uv. Ete. FVIkarp. SBVp. Say. Casa Far. N³ el. Ik. Elg. EtkarsÞg; t. Mélnigl. T§kmµEdl. Gnuvtþtam vi. FIsa. Rsþ eday. ELk d. Ucman. Ecgen. A kñúgma. Rta 6 én. Gnu. Rkwtüen. H. GñkedjéføTa. Mg. Gs; mint. Mr. Uve. Gaye. FVIkarcu. Hb. Ba¢Ie. FVIc. MNat; R be. PT nigc. MNat; fañk; Rkumh‘un ed. Im, Isi. T§e. Bj 61
ma. Rta 29 ed. Im, Imansi. T§ic. Ulr. Ymen. Akñúg. KMeragk argarsa. Far. N³Gñk. TTYlkarsagsg; Rt. Uv. Etcu. He. Q µa. H kñúgb. B¢a. Ie. FVIc. MNat; Rbe. PT nigc. MNat; fañk; Rkumh‘unedayeyagel. IRbe. PTK Merag. Edl. Gñk. TTYlkarsag sg; mansmtßPa. BRKb; RKan; kñúgkarb. Me. Bj. kare. FVIc. MNat; Rbe. PT nigc. MNat; fñak; Rkumh‘un nwg. Rt. Uve. FVI e. LIgeday. KN³kmµa. Fikarm. Yy. Edlmant. MNagnay kdæanl. T§kmµsa. Far. N³e. FVICa. Rb. Fant. MNag. Rks Yg erobc. MEdnd. In. Kr. Ubn. Iykmµ nig s. MNg; nig 62
ma. Rta 30 man. EtÉksaredjéføeday. Rbk. Yt. Rb. ECg. Calk çN³Gnþr. Cati “db. G” nigkaredjéfø eday. Rbk. Yt. Rb. ECg Rsuk “dbs” b: ue. NÑa. H Edlnwg. Rt. Uvlk; e. Gay. Gñkedjéfø. Éksarl. T§kmµep. Sg e. Tot. Rt. Uv. Eck. CUnedaymin. Kitéfø. t. Méllk; Éksaredjéfø Rt. Uvsißten. Ae. Rkamkar. ENna. MEdlnwg k. MNt; kñúg Gvbls. 63
ma. Rta 31 RKb; Éksaredjéfø eday. Rbk. Yt. Rb. ECgv. CalkçN³Gnþr. Cati “db. G” karedjéføeday Rbk. Yt. Rb. ECgkñúg. Rsuk “dbs” nigÉksarbuerlkçN³sm, tþi. Rt. Uverobc. Me. GTayr. Y ce. Rsc)ac; s. Mrab; lk; nwgpþl; e. Gay. Gñkc. Ulr. Ymedjéfø)an. Tan; e. Blevla nigesµIPa. B. kar. Bnüary³e. Blp. SBVp. Say Rt. Uv)an k. MNt; e. LIgvijc. Me. Ba. Hehtuplsm. Rsb. Nam. Yy. Edlb Naþle. Gayy. Wty: avkñúgkarerobc. MÉksaredjéfø. saßb½n. Gnuvtþl. T§kmµRt. Uve. FVIkar. Bnüakalb riecäTs. Mrab; TTYlÉksaredjéføb¤Éksarbuerlkç 64
ma. Rta 32 ral; kar. R)a. Rs½y. Tak; Tg. Cam. Yy. Gñkedjéfø en. Akñúg. GMLúge. Blk. MBugd. Me. NIrkaredjéfø kar vayt. Mél niwgkarerobc. Me. FVIkic©snüa. Rt. Uve. FVIe. LIg. Ca laylkçN¾Gk. Sr eh. Iykñúgkr. NícrcaéføRt. Uvman k. MNt; ehtuénkarcrcaéfø Edl. Rt. Uvcu. Hhtßelxa eday. Pa. KITa. Mg. BIr. ma. Rta 33 Kµan. GñkedjéføNam. Yy. Rt. Uv)an. Gnu. BaØat ie. Gaydwg b¤)an. TTYl. Bt’man. GMBIl. T§pl énkaredjéføCapøÚvkare. LIy 65
ma. Rta 34 RKb; s. Me. NIedjéfø niwgs. Me. NIe. RCIser. Is. TIRbwk. Sa. Ta. Mg. Gs; ¬Ta. Mgbec©ke. Ts nighir. BaØvtßú¦ Rt. Uv. Eterobc. Meb. Ik Casa. Far. N³ eh. Iyk. MNt; ehtu. Rt. Uvpþl; e. Gay. Rkumh‘un nigbu. KÁl. Edl)anc. Ulr. Ym Ta. Mg. Gs; . k. MNt; ehtu. Rt. Uvbi. T nig Rbkasel. Ib. Ba¢r. Bt’manen. Asßab½n. Gnuvtþl. T§k mµ Edlsa. Far. NCn. TU e. TAGacem. Ile. XIj cab; BIe. Rkayéf¶eb. Ik Éksaredjéfø b¤eb. Iks. Me. NIs. Muedjéfø b¤bnÞab; BIkar. Rb. Kl; 66
ma. Rta 36 r)aykar. N¾vayt. Mél. Rb. Kl; kic©snüan. Im. Yy ² Rt. Uvrk. Sa. Tuk. CaÉksaren. Asßab½n Gnuvtþ l. T§kmµ. r)aykar. N¾vayt. Mél Rt. Uv. Ete. Kar. Btam. KMr. Ysþg; dar Edlnwgk. MNt; kñúg Gvbls. esckþIsegçb. GMBIl. T§plénkarvayt. Mél Rb. Kl; kic©snüa Rt. Uvbi. TRbkasel. Ib. Ba¢r. Bt’man b¤dak; kñúg e. Kh. TMB½r. Rbsiineb. Imanen. Asßabn½Gnuvtþl T§kmµEdl sa. Far. NCn. TUe. TAGacem. Ile. XIj cab; BIe. Rkay éf¶eb. IkÉksaredjéfø 67
ma. Rta 37 sma. Cik. Ta. Mg. Gs; rbs; GgÁPa. Bl. T§kmµ “Gl” KN³kmµa. Fikark. MNt; buerlkçN³sm, tþi vayt. Mél nig. Rb. Kl; kic©snüa “Kbvb” m. RnþInaykdæanl. T§kmµsa. Far. N³ GñkedjéføRt. Uvhtßelxael. IesckþIRbkassþIBI Rkms. Il. Fm’ vi. Ca¢CIv³ Edlnwgk. MNt; kñúg Gvbls. sma. Cikrbs; GgÁPa. B l. T§kmµm. RnþInaykdæanl. T§kmµ sa. Far. N³ Rt. Uvcu. Hhtßelxael. IesckþIRbkasen. H Caerogra; lqña. M. GñkedjéføRt. Uvcu. Hhtßelxaerogral; e. Bl. Edlda 68
CMBUk. TI 8 karbþwgtva: nwgkar. Rt. Yt. Binitükic©l. T§kmµ ma. Rta 38 Gñkedjéfø b¤TIRbwk. Samansi. T§dak; Baküb. Wþgtva: Calay lkçN¾Gk. Sren. ARKb; d. MNak; kalén d. Me. NIrkare. FVIl. T§kmµ. Bakübþwgtva: en. HRt. Uvdak; CUnsam. Isßab½n. G nuvtþl. T§kmµedayb. Me. Bje. Qµa. H nigcu. H htßelxael. IBakü bþwgtva: eh. Iy. Rt. Uvc. Mlgb. Nþwgen. H b. Ba¢Úne. TARks. Ygesdækic© nighir. BaØvtßú 69
Gñkedjéfø b¤TIRbwk. Sa Edlmine. Bjcitþnigc. Mel. Iyrbs; sßab½n. Gnuvtþl. T §kmµ mansi. T§bwþg bnþEfmkñúgry³e. Bl 15éf¶ énéf¶e. FVIkar. Kit. BIéf¶Edlsaßb½n. Gnuvtþl. T§k mµ)an pþl; c. Mel. Iy nigs. Mue. Gay. Rks. Ygesdækic© nighir. BaØvtßúe. FVIkar. Binitüe. LIgvijel. IesckþIr bs; sßab½n. Gnuvtþ l. T§kmµ. Rks. Ygesdækic© nighir. BØavtßú Rt. Uvpþl; c. Mel. Iy kñúgry³e. Blv 15éf¶ éne. FVIkar Kit. BIéf¶)an. TTYl. Bakübwþgtva: . ma. Rta 40 70
ma. Rta 41 RKb; saßb½n. Gnuvtþl. T§kmµ Gñkedjéfø GñkpÁt; pÁg; Gñk. TTYlkarsagsg; nwg. TIRbwk. Sa en. Ae. Rkamkic©snüahir. BaØb, Tansa. Far. N³ Rt. Uv. Rbkan; x¢ab; n. Uv. Rkms. Il. Fm’vi. Ca¢CIv³x<s; b. Mput en. Akñug. GMLúge. Ble. RCIser. Is nigkar. Gnuvtþkic©snüa. ra. Crdæa. Pi)almansi. T§e. FVIGFikarkic© nig. Binitüe. LIgvijel. IÉksar. Edl. Cab; Bak; B½n§nw gkar edjéfø s. Me. NI s. Muedjéfø nigkic©snüarbs; Gñkedjéfø Gñk. TTYlkar. GñkpÁt; pÁg; 71
CMBUk. TI 9 e. Tasb, BaØtþi ma. Rta 42 bu. KÁl. Ta. Mg. Gs; Edl. Bak; B½n§nwgd. Me. NIr karl. T§kmµRt. Uvraykar. N¾e. TAKN³kmµa. Fikark MNt; buerlkçN³sm, tþi vayt. Mél nig. Rb. Kl; kic©snüa “Kbvb” rbs; sßab½n. Gnuvtþl. T§kmµb¤sßab½nman smtß kic©ep. Sge. Tot en. Ae. Bl. Edlman. Psþútagc, as; las; Edl. Cam. Uldæan na. Me. Gaymankarsg. S½yfaman. GMe. BI Bukrl. Yy GMe. BIbnøM GMe. BIXub. Xit nig. GMe. BIbgçitbgçM. 72
e. Gayx. Ucxac. Rbeya. Cn¾rbs; ra. Crdæa. Pi)al nigr. Ym. Cam. Yy. GMe. BIXub. Xitkñúgc. Me. Nam. Gñk edjéfø ¬mun b¤e. Rkaye. Bldak; s. Me. NIs. Muedjéfø¦ ed. Im, Ierobc. MbegáItt. Méledjéføsib, nimµitbegá Itk. Mrit min. Emn. Ca lkçN³Rbk. Yt. Rb. ECg e. FVIe. Gayx. Uc. Rbeya. Cn¾rbs; ra. Crdæa. Pi)al kñúgn½ymin. Emn. CalkçN³Rbk. Yt. Rb. ECg edayc. Mh nigesr. I. -“: GMe. BIXub. Xit” s. Med. Adl; Epnkar b¤karerobc. Mrvag. GñkedjéføBIr b¤e. Rc. Innak; Edlerobc. Me. LIg 73
ma. Rta 43 en. Ae. Blsßab½n. Gnuvtþl. T§kmµxkxankñú gkarpþl; r)aykar. N¾sþIBIskmµPa. Bl. T§kmµEdln wg k. MNt; kñúg Gvbls b¤l. T§plénkar. Rt. Yt. Bin. Itüel. IBaküb. Nþwgbgðajfa sßab½n. Gnuvtþl. T§kmµmin)an GnuvtþRtwm. Rt. Uvtam vi. FIsa. Rsþ nign. Itivi. FIénl. T§kmµ b¤man. JPsþútagbgðajfa man. GMe. BIBukrl. Yy GMe. BIbgøM GMe. BIXub. Xit nig. GMe. BIbgçitbgçM Rks. Ygesdækic© nighir. BaØvtßú mansi. T§t. Mr. Uve. Gaysaßbn½Gnuvtþl. T§kmµen 74
ma. Rta 45 en. Ae. Bl. Edl. GñkedjéføGñk. TTYlkar GñkpÁt; pÁg; Rkumh‘un. TIRbwk. Sa b¤TIRbwk. SaÉktþCn Rt. Uv)anrke. XIjfa man. Bak; B½n§kñúg. GMe. BIBukrl. Yy GMe. BIekgbnøM GMe. BIbgçitbgçM nig. GMe. BIXub. Xit. Kña rdæm. RnþIRks. Ygesdækic© nighir. BaØvtßú Gac s. Mercham. Xat; Rkumh‘un b¤bu. KÁl. Ta. Mgena. Hmine. Gayc. Ul r. YmkñúgkarpÁt; pÁg; TMnij s. MNg; esvakmµ Ca. GciéRnþy¾ b¤kñúgry³e. Blmintic. Cagb. Iqña. M. 75
CMBUk. TI 10 Gvsanb, BaØtþi ma. Rta 46 b. Tb, BaØtþi. Ta. Mg. Lay. Na EdlpÞúynwg. Gnu. Rkwtüen. H Rt. Uvcat; Tuk. Canirakr. N¾. ma. Rta 47 rdæm. RnþITTYlbnÞúk. TIsþþIkar. KN³rdæm RnþI rdæm. RnþIRks. Ygesdækic© nighir. BaØvtßúrdæm. RnþIRKb; Rks. Yg saßb½n rdæelxa. Fikar RKb; rdæelxa. Fikardaæn GPi)al. RKb; extþ Rkug Rb. Fansh. RKassa. Far. N³Rt. Uv. TTYl 76
- Gl³ GgÁPa. Bl. TÁkmµ - PU: Procurement Unit - sl³ sßab½n. Gnuvtþl. T§kmµ - PE: Procuring Entity - db. G³ karedjéføeday. Rbk. Yt. Rb. ECg. CalkçN³Gnþr. Cati - ICB: International Competitive Bidding - dbs³ karedjéføeday. Rbk. Yt. Rb. ECgkñúg. Rsuk - NCB: National Competitive Bidding Bf³ kar. Bie. RKa. Héfø Sh: Shopping st³ karsÞg; t. Mél Ca: Canvassing kp³ karcu. Hkic©snüa DCo: Direct Contracting k. GC³ karcu. Hkic©snüa. Cam. Yy. GgÁPa. BCMnajénsaßbn½Gn uvtþl. T§kmµ 77
Donor-Assisted Procurements Carried Out Under SOP/PM Procedures Procurement Sub-decree No. 14 dated 2007 disseminating: - Standard Operating Procedures (SOP) - Procurement Manuals (PM)
The Procurement Manual Policies and procedures for the procurement of goods, works, and consulting services For Externally Financed Projects / Programs in Cambodia 79
Project Cycle Identification 1 Evaluation Implementation 6 2 5 3 4 Preparation Appraisal Loan/Grant Negotiation & Board Approval 80
PFMRP Procurement Plan The Procurement must be carried out using the following procurement methods 1. 2. 3. 4. International Competitive Bidding (ICB) National Competitive Bidding (NCB) National and International Shopping (NSH & IS) Selection based on Consultants Qualifications (CQS) This training material for the PFMRD project will focus on the above procurement methods 83
Economy and Efficiency Suitability of the goods/equipment/services purchased. The useful life. Operating, maintenance and servicing costs. Availability of after sales service The delivery period. Onward transportation costs. Storage costs. The time taken to procure the goods 84
Equity Eligible suppliers provided equal opportunities Ensure equitable grounds for competition A fair basis on which to compete 85
Ethical Standards Code of Business Ethics No individual shall use his authority or office for personal gain An individual shall seek to maintain and enhance the reputation of the Government Conflict of interests & personal relationships Confidentiality and accuracy of information All shall be treated with fairness and impartiality No business gifts will be accepted A moral and ethical responsibility to report any unethical conduct 86
Fraud and Corruption “corrupt practice” “fraudulent practice” “collusive practices” “coercive practice” The ADB will cancel the portion of the Grant/Loan allocated to the contract Declare a consultant or firm ineligible Permit the Government and the WB to inspect accounts and records 87
Conflicts of Interest Declare any potential conflicts of interest Bidders and consultants with potential conflict of interest are not eligible Firms hired for project design, and implementation are not eligible to provide goods, works or services 88
Transparency in the Procurement Process The general procurement notice Specific procurement notices UN Development Business on line Development Gateway’s dg Market News Paper of national circulation (The above requirements are mandatory for all ICB contracts) 89
Procurement Roles and Responsibilities Manual on Standard Operating Procedures for Foreign Assisted Projects MEF will undertake an oversight role MEF representative on the Procurement Committee For EAs as provided in the project/grant agreement Financial limits at which decisions can be determined at the start of each project 90
Project Management Units A Project Management Unit (PMU) with the delegated authority to implement the project The PMU acts as the focal point for project implementation It undertakes all of the core procurement activities required for the project 91
Procurement Responsibilities Project Director Approves and signs contracts, invoices and important procurement documents A member of the procurement committee Overall responsibility for ensuring that the ADB and the Government’s Procurement Guidelines are followed Ensures that all mandatory reports are issued on time 92
Procurement Responsibilities/ …Cont. Project Manager Approves and signs contracts, invoices and procurement documents below an agreed threshold A member of procurement committee The primary contact for all formal communications relating to procurement Ensures that all procurement monitoring and reporting is undertaken in a timely and efficient manner Leads all negotiations Chairs and supervises all bid openings 93
Procurement Responsibilities/ …Cont Senior Administrative Officer Assists the Procurement Officer to draft the overall project procurement plan Assists the Procurement Officer in the monthly updating of the overall project procurement plan 94
Procurement Responsibilities/ …Cont Chief Financial Officer Supervises the management of all financial transactions and payments As a member of the procurement committee, undertakes financial pre or post qualification review Attends bid openings, verifies and records the bid securities that may be required Receives and arranges for the safe keeping of all bid securities 95
Procurement Responsibilities/ …Cont. Technical Officer Drafting, or supervising the drafting of, all specifications, scopes of work and terms of reference Assisting the Procurement Officer in selecting the appropriate evaluative criteria, special conditions of contract and contractual performance indicators Manage and administer the implementation of contracts Monitors and evaluates progress and performance of technical staff, consultants, and contractors 96
Procurement Responsibilities/ …Cont Procurement Officer Drafting and updating the project’s general procurement notice (GPN) Quantify the goods works and services required Group the goods works and services required into packages Preparing the overall project procurement plan Update the overall project procurement plan each month Drafting specific bidding documents Prepare and issue through the Project Manager Specific Procurement notices Submit the documents through the Project Manager to the WB 97
Procurement Responsibilities/. . Cont. Procurement Officer Distribute copies of the Invitation for Bids to all relevant firms Distribute the bidding documents Respond to all clarification requests received Ensure that the venue for bid opening is adequate and that logistical arrangements are in place Receive all bids and proposals ensuring their secure storage Undertake the public opening of bids Review and pass all bid securities to the Financial Officer at bid opening Undertake preliminary evaluation of all bids and proposals Facilitate the technical evaluation of all bids and proposals received 98
Procurement Responsibilities/ …Cont Procurement Officer Seek clarifications to bids and proposals as required to complete the evaluation Draft the Bid Evaluation Report for review Respond to queries raised on the evaluation report from oversight agencies or the ADB Prepare draft contracts Ensure that the relevant oversight agencies are provided with copies of contacts Issue the notification of award Draft the documentary requirement for any letter of credit Monitor suppliers/contractors/consultants performance against the contract 99
Procurement Responsibilities/ …Cont Procurement Officer Review all payment requests received Ensure that either the performance security or retention monies are in place to adequately protect the Government Ensure that all performance securities and retention monies are returned to the supplier or contractor upon the satisfactory completion of their contractual obligations Act as The Secretary to the Procurement Committee 100
The Procurement Committee Review the scope of each procurement package prior to commencement Review all Bidding Documents (BD) and Requests for Proposals (RFP) Attend and supervise the public opening of bids and proposals Review evaluation and approve evaluation reports for goods and works Individually and independently undertake the evaluation of proposals 101
Procurement Committee Formation and Thresholds Committee on minor procurement review and approve all goods up to the value of US$ 25, 000 review and approve all works contracts up to to the value of US$ 50, 000 Review and approve all service contracts up to the value of US$ 5, 000. Chaired by the Project Manager and include the Project Technical Officer and a representative of MEF 102
Procurement Committee Formation and Thresholds General committee on procurement Review and approve all goods ranging in value: US$ 25, 000 - 500, 000 Review and approve all works contracts to the value: US$ 50, 000 - 3, 000 Review and approve all service contracts from US$ 5, 000 - 500, 000 Individually and independently undertake the evaluation of all contract proposals 103
Procurement Committee Formation and Thresholds General Committee on Procurement Chaired by the Project Director. The members will be the Project Manager, one representative from the EA (and not a member of the PMU) and one or two representatives from MEF at the discretion of MEF. In the event that MEF only designates one representative for a particular meeting the Project Financial Officer will be invited to become a Committee member for that meeting. 104
Procurement Committee Formation and Thresholds Major Committee on Procurement review and approve all goods above threshold value : US$ 500, 000 review and approve all works above threshold value : US$ 3, 000 Review and approve services above $500, 000 Individually and independently undertake the evaluation of all contract proposals above threshold value 105
Procurement Committee Formation and Thresholds Major Committee on Procurement Chaired by the Head of the EA or a duly authorized representative Project Director One representative appointed by the head of the EA Two representatives from the MEF 106
Procurement Committee Formation and Thresholds The Project Director or MEF may invite any number of observers to the meetings of each Procurement Committee meeting In the event that authority or approval is required by a Committee member from his/her parent organization, the Chair of the Committee will set a deadline for obtaining such approval 107
Methods of Procurement The Procurement of Goods The Procurement of Civil Works The Procurement of Consulting Services 108
Methods of Procurement, Goods International Competitive Bidding (ICB) Limited International Bidding (LIB) National Competitive Bidding (NCB) Shopping (NS or IS - either national or international) Direct Contracting (DC) 109
Methods of Procurement, Goods International Competitive Bidding (ICB) In most cases the preferred method; Must adopt the ADB’s standard documents; Used when the value is above US$100, 000; Provides a wide range of choices from competing suppliers; Provides the suppliers (or potential suppliers) adequate, fair and equal opportunity; Advertised both nationally and internationally 110
Methods of Procurement, Goods Limited International Bidding Identical to ICB, the same standard document of the World Bank is used but no advertising The goods or equipment is highly specialized and there are only a limited number of suppliers The items are proprietary For an urgent repeat order 111
Methods of Procurement, Goods National Competitive Bidding Value is below US$100, 000 or as stated in the Loan/Grant Agreement Advertised nationally All suppliers both foreign and national are eligible to bid No domestic preference is applicable Standard National Competitive Bidding document issued by MEF Use of this document for NCB is mandatory 112
Methods of Procurement, Goods Shopping (International and National) For values below US$ 20, 000 Compares the priced quotations Above US$5, 000 will be advertised Quotations are sealed and opened in public Used for off the shelf items, when standardization is important and exceptional circumstances as approved by MEF/ADB Uses standard bidding documents issued by MEF 113
Methods of Procurement, Goods Direct Contracting (DC) Should be used as little as possible No competition For procurement of less than $500 The contract is negotiated May be used in exceptional cases with the prior approval of MEF/WB 114
Methods of Procurement, Works International Competitive Bidding (ICB) In most cases the most appropriate method Used when the value is above US$300, 000 Must use the WB’s standard bidding documents Provides a wide range of choices from competing contractors Provides the contractors adequate, fair and equal opportunity Advertised both nationally and internationally Open to all who purchase the bidding document 115
Methods of Procurement, Works Limited International Bidding Identical to ICB, the same standard document of the ADB is used but no advertising The works are highly specialized and there are only a limited number of contractors The works are proprietary For an urgent repeat order 116
Methods of Procurement, Works National Competitive Bidding Value is below US$300, 000 Advertised nationally All contractors both foreign and national are eligible to bid No domestic preference is applicable Standard National Competitive Bidding document Use of this document for NCB is mandatory 117
Methods of Procurement, Works Shopping (International and National) For values below US$ 20, 000 Compares the priced quotations Above US$5, 000 it will be advertised Quotations are sealed and opened in public Used for off the shelf items, when standardization is important and exceptional circumstances as approved by MEF/ADB Uses standard documents issued by MEF 118
Methods of Procurement, Works Direct Contracting (DC) Should be used as little as possible No competition Only when specifically allowed under the projects Loan/Grant agreement May be used in exceptional cases with the prior approval of MEF/ADB 119
Methods of Procurement, Works Force Account Government’s own workforce, equipment and resources are used The quantities of works cannot be defined in advance Works are small and at scattered locations There is a natural disaster or similar emergency needing immediate attention Has the endorsement of the MEF/ADB 120
Methods of Procurement, Services All service procurement with the exception of single source must be advertised nationally. Service procurements above $100, 000 must be advertised internationally 121
Oversight and Accountability
Basic Definitions Oversight: supervision or watchful care Accountability: liable or answerable. Transparency: adhering to published rules Good Governance: How Government uses a country’s resources for the public good
Characteristics of Public Sector Auditing Audit provides an independent, objective, and a professionally conducted assessment about the veracity, accuracy, credibility and reliability of information. Traditionally, audit is seen as a service, provided by independent professionals strictly observing generally accepted standards of performance. A professionally executed audit can provide a fact-based and objectively-derived opinion.
External and Internal Audit: Differences and Similarities The essential difference between external and internal audit is that internal audit is part of the organization being audited, while external audit is not. External audit in the public sector reports to parliament and is considered part of legislative oversight Internal audit in the public sector reports to the executive and is considered to be part of executive oversight.
External Audit External auditors are those who are outside of, and independent from, the entity subject to audit. Reporting is usually to third parties. In the public sector, external audit is generally external to the Executive Branch of government. In the private sector, external auditors are appointed at the annual meeting of shareholders of an entity, usually to conduct an audit of the entity’s annual financial statements.
Internal Audit Internal auditing is an independent, objective assurance and consulting activity designed to add value and improve an organization’s operations. It helps an organization accomplish its objectives by bringing a systematic, disciplined approach to evaluate and improve the effectiveness of risk management, control, and governance processes.
Pre-Award Audit Before the award of a government contract Purpose: to independently determine the fairness and reasonableness of a bidder’s price A critical step when competition is lacking
Post Award Audit After the award of a government contract, if permitted by statute or a contractual provision Purpose: to determine the completeness and accurateness of factual representations, and therefore recover excess profits
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