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Public e-Procurement in Italy: Consip’s role and e-Proc System. Luca Mastrogregori Head of e-Procurement Strategies Consip Spa [email protected] Amman, July 7, 2010. Public Procurement and e-Procurement in the EU - PowerPoint PPT Presentation
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Luca MastrogregoriHead of e-Procurement StrategiesConsip [email protected]
Amman, July 7, 2010
Public e-Procurement in Italy: Consip’s role and e-Proc System
2
• Public Procurement and e-Procurement in the EU
•General Overview on Consip in the Italian Public Procurement System
• E-procurement platform, e-marketplace and new e-proc tools
3
EU Legislation Framework• The legislative package of public procurement Directives, approved
in 2004 by the European Parliament and the EU's Council of Ministers and entered into force on 20 April 2004, aims to simplify, harmonies and modernise procurement procedures applied by the EU Member States.
• This revision merges the four existing European directives into two legal instruments:
– The so-called "traditional" Directive 2004/18/EC for public works contracts, public supply contracts and public service contracts;
– Directive 2004/17/EC on the "special sectors" of water, energy, transport and postal services.
• Among several innovative provisions the new Directives strongly promote the development of electronic procedures while enforcing general fundamental Principles:
– Non-discrimination– Transparency– Fair competition
4
EU Legislation Framework
Contracting Ordering
Ordering InvoicingPayment
Monitoringof Contract
Outside the scope of EU public
procurement Directives
E-commerce Directive(Electronic Signatures Directive)
E-invoicing (VAT Directive) Data protection
PublicationAccess to
documents Contract
specifications
BiddingReceipt of offers
Offer evaluation Contract award
Choice ofprocedure
Thresholds/Rules of aggregation
Shorter time-limits for online notices & electronicaccess to tender documents
New standard formsfor publication in OJEU
Data integrityConfidentialitySecurity &AuthenticationTraceability
Non- discrimination
e-cataloguese-auctions
Automatedevaluation
Automated Award
Electronic Purchasing Methods
The Directives focus on the tendering procedure and establish the legal framework from the publication of notices to the award of contracts.
5
EU Legislation Framework• The new Directives set out the procedural rules and detailed provisions
for the use of electronic means in public procurement:
– Use of electronic means is a choice of contracting authority– All stages of procedure can be conducted electronically– General requirements for communicating, advertising and receiving
tenders• Unrestricted access to tendering procedure: use of non-
discriminatory, generally available and interoperable tools (communication, tender submission, etc.)
• Integrity, confidentiality, exact time stamping, locking of data, ‘4-eyes principle’
• Traceability of all operations• Specifications for transmitting tenders (encryption, format etc.)
must be published in the tender documents• E-signatures in conformity with national legislation transposing Dir
1999/93/EC
• and introduce new purchasing techniques: – Electronic auctions– Electronic catalogues– Dynamic Purchasing Systems
6
The benefits of e-procurement for Public Procurement
• The importance of eProcurement in the European Union is widely recognized. The Ministerial declaration approved unanimously on 24 November 2005 in Manchester, states that eProcurement “will lead to lower transaction and processing costs for public administrations and to increased efficiency, for example greater speed in procuring services and goods and reduced spending due to increased choice and competition”
• But significant benefits are taken by eProcurement in terms of efficiency and improved competition as well; as stated in the same declaration above mentioned “competition, with a higher participation of SMEs, in turn will lead to greater innovation in the private sector.”
• According to an estimation made by the European Commission and reported in the Action Plan for the implementation of the legal framework for electronic public procurement [1],
– administrative cost saving of e-procurement are expected to be about 30%, while
– purchasing cost savings could be as high as 10% to 50%.
[1] Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions, Action Plan for the implementation of the legal framework for electronic public procurement, Brussels 13.12.2004.
7
The role of government agencies
• A number of EU countries have developed initiatives for the modernisation of Public Procurement, based on the Centralisation of competencies and investments
• These “competence centres” (some of them are listed)) play a key role in e-proc implementation, supporting awarding authorities and suppliers with education, consultancy and transactional services
Country EntityAustria BBG
Denmark SKIFinland HanselFrance UGAP
Germany BeschAIreland NPPPU
Italy ConsipScotland Scottish Procurement
DirectorateSpain Subdirección General
de ComprasSweden Statskontoret
United Kingdom OGC
8
• Public Procurement and e-Procurement in the EU
•General Overview on Consip in the Italian Public Procurement System
•E-procurement platform, e-marketplace and new e-proc tools
9
• Inhabitants: 59 mln people
• Public Admin. employees: 3.350.000
• Ministries: 23
• Central PA Authorities: >100
• Regions: 20
• Provinces: 110
• Municipalities: 8.100
• School system: Universities: 94 Public schools:
>10.000• Health Sector: Hospitals, Local
Health Agencies, Public Clinics: >300
• Consip Ordering points: 61.593
A complex scenario
10
Consip is a public stock company, created in 1997 by the Ministry of Economy and Finance (MEF), its sole stockholder.
Consip has no profit goals and it deals with two main fields of action.
1997
managementand development of
ICT services for the MEF
2000
Eprocurement for Public Administrations
MEF PAs
Set up, diffusion and support
of Eprocurement system & tools
Consip SpA
Consultancy on Technical and Organizational
Projects
11
Implementation of the Program for the Rationalization of Public Spending on Goods and Services through the use of information technology and innovative tools for the purchases of the Administrations (frame contracts, web-based tenders, the Electronic Marketplace, as well as special projects and on demand consultancies).
In such activity Consip acts as an “awarding administration and contracting authority” that defines, implements and awards tenders on behalf of other Administrations. The implementation phases of the projects are executed by means of an accurate identification of the best solutions offered by the market that meet the needs of the Administrations
Consip Fields of Action
Public / eProcurement
2000
IT services for MEF
Eprocurement
1997
PAs
12
Consip’s Organization
Chief Executive Officer
Information SystemsDivision
Public Procurement
DivisionPublic Finance
DivisionBusiness support
Division
Human Resources and Organization Division
Administration andGeneral Accounting
Corporate Affairs
IT Infrastructures Division
R&D
Budget and Control
Legal AffairsDivision
Corporate Identity
Institutional RelationsDivision
•Employees: 500 people (170 in the Public Procurement Division)
•Women: 44%•Average age: 40
13
Consip’s Public Procurement Division
Public Procurement
Relationship with PAs
Relationship with suppliers
eProcurement
strategies
TLCgoods/services
Real Estate goods/servicesIT goods/services
Promotion vsPublic Administrations
Utilities and other goods and services
GPP
Health sector goods and services
Planning and Monitoring
14
Process simplification
Quality
Improve the ratio between cost and quality of the goods and services offered to PA
Reduce procurement time simplifying the entire procurement process
Public SpendingOptimization
Guarantee transparency and public communication on tender procedures and awarding criteria, enhancing competition and competitiveness
Innovation
Develop innovation procurement tools encouraging change management among public officials and suppliersE-PROCUREMENT
Transparency
Public Procurement System goals
15
Suppliers
Consip
PA • Detailed analysis of PA needs• Public procurement purchasing tools offer (platform)• Ready-made tenders
• Supply market analysis (offer)
• Tender strategies identification
• Cooperation and working tables (supplier desk)
SUPPLY DEMAND
Finding the best match between PA and supplier needs: - offering the most appropriate procurement systems to PA
- offering business opportunities to the supply market.
Two opposites parties with apparently different goals…
16
• Public Procurement and e-Procurement in the EU
•General Overview on Consip in the Italian Public Procurement System
• E-procurement platform, e-marketplace and new e-proc tools
17
Consip action lines
Electronic Shops e-Marketplace
Purchases within frame contract
Direct Purchase Many-to-one approach Purchase scope:
Large volumes Standardized Low price volatility Slow obsolescence Demand aggregation
On line Auctions
Development of Frame contracts or ASP towards other administrations
Automatic Technical and economic offer evaluation
Purchase scope: Specialized High price volatility Rapid obsolescence
Purchases below the Eu threshold
Direct Purchase or RFQ Many-to-Many approach Supplier defined e-Catalog Purchase Scope:
Low cost Highly fragmented
Above and Below EU Threshold Below EU Threshold
FRAMEWORK CONTRACTS MARKETPLACESUPPORT TO PA SPECIFIC NEEDS
E-PROCUREMENT SYSTEM
The development of the Program in the short/medium term is based, therefore, on three main action lines …strongly supported by a comprehensive e-procurement system
1. 2. 3.
Program portal: www.acquistinretepa.it
18
The e-Procurement Portal
On-line services
Notices
e-shops
Marketplace
Tender publication, supplier qualification for Public eMarketplace, .... Opportunity to buy on line using frame contracts conditions (on-line orders)
On line access to public Marketplace
Registration Public buyer registration
Specific Market Area
Data and information on “Client market Area” (Central PA, Health bodies, Universities, Municipalities)
Data & NewsWho we are, what we do, what you can buy, how you can buy, Newsletters, Magazines…
Electronic auctions On line access to public auctions
Supplier AreaInformation on e-procurement models, correct way to participate to public tender, ...
www.acquistinretepa.it
19
FornitoriFornitoriConsip Suppliers
FornitoriFornitoriPP.AA.
Payments
Delivery
On-line/fax order
Frame contracts
Contracts Reporting
Needs Feedback
Monitoring Tools
Public Procurement Model
Framework contracts - the model
20Source: analysis and research from consip
Consip’s framework contracts - 2009 results
Central38%
Local33%
Health24% University
5%
• The Consip’s framework contracts’ turn over in 2009 corresponds to 1,7 billion euro
• Consip managed 69 framework contracts; 19 of them activated in 2009
• The most important framework contracts, in terms of total expenditure in €, are meal vouchers, energy related services (heat, electricity), facility management, fuel coupons
21
Framework contracts – eshops
E-shops represent an open window on the web in which goods and services selected through framework contracts are available to PA procurement offices registered to the Program
Product Product selection and selection and online (or fax) online (or fax)
orderingordering
Traditional Traditional and electronic and electronic
tenderstenders
22
Electronic tenders and marketplace - Decree 101/2002
• In particular, by the adoption of this Decree, new electronic awarding procedures are introduced for the first time in the italian legislative framework. These new methods do not replace the traditional awarding procedures, but they represent an alternative measure for the awarding authorities in the public procurement processes.
• In particular the Decree provides for the Public Administration two different electronic goods and services purchasing techniques, to be performed in compliance with the transparency and non discrimination principles:
• the electronic tender
• the marketplace
23
Decree 101/2002 – The electronic tender
1. The Electronic tender, according to the provision set by the article 1.a) and b) of the Decree 101/2002
• is a procurement procedure with whom contracting authorities purchase goods and services both above and below the European threshold limit
• and exactly a public contract awarding procedure exclusively performed through electronic devices in compliance with the provisions set out in the Decree itself.
2. Auction format is defined by the following elements:• Style of negotiation: Open - Blind (sealed bid)• Award criteria: Lowest price - More economically advantageous
tender• Ranking algorithm: SUM Score = “Technical Score” + “Economical
Score” RATIO Score = Economical bid/Technical Score • Type of negotiation: Continuous - Single round – Multiple round
24
Advantages (vs traditional auctions) Transparency :
Each step is recorded; Clearness and standardisation of procedures; It is not possible to modify data recorded; The procedure can be seen by hundreds of persons
Time reduction Automation of awarding criteria evaluation, that can lead to choose to
have no Awarding Commission Closing steps (e.g.: notification to participants; signing of contract) can
be performed on-line Cost reduction
Facilitate participation travel costs
Disadvantages (vs traditional auctions) Tenders can be contended on a minor number of parameters IT equipment required
The electronic auction – advantages and disadvantages
25
MEPA
Qualified suppliers selected through a qualification process, starting from the date of publication of the “qualification notice”
Suppliers
Central Government
Universities Local
Government Health bodies
Buying administrations
Mar
ket
Qualification notice(public
announcement)
The PA marketplace - the modelMEPA (Electronic Marketplace for Public Administrations)
• The marketplace is a fully electronic system for purchasing goods and services below the EU threshold
• It works as a virtual market in which the acquiring Public Administration can select goods and services offered by several suppliers from an electronic catalogue offered in a virtual shop shown on the Consip’s website. The marketplace is open to qualified suppliers who comply to the provided selection criteria
• The whole process is conducted by using electronic and digital means including the electronic signature, in order to legally guarantee the transactions
26
The qualification notice will also provide information on:• product and service categories• objective and subjective needs for qualification• technical and quality characteristics of supplies as well as
service levels to take into consideration during the qualification phase
• assessment criteria for qualification requests
Furthermore, general supply conditions have to be drafted (i.e. contract template)
Qualification notice
publicationSuppliers
qualification
operating phase ‘una tantum’ phases
Suppliers qualification
notice Transactions
The PA marketplace - the phases
27
Item name
technical specifications (standardized catalogue)Supplier’s
name
Price
The PA Marketplace - the catalogues
28
The PA Marketplace - buying options
Public users may buy in 2 different ways:• making a direct purchase selecting goods and services from the catalogue • negotiating the product quality and service levels with qualified suppliers (Request for Quotation), handling on-line the entire purchasing process and digitally signing the order
Direct purchase
Request for Quotation
Public user Supplier
29
Furnitures
IT HW and SW Stationer
yHealthcar
e
Individual
protection devices
Electric maint. svcs
Training &
Education svcs
Elevators maint. svcs
Gas providing
svcs
Electric material and air condit. equip.
Cleaning products
Print & Copy
equipment
Laboratory
equipment
TLC products
Office cleaning
svcsOffice
and road signals
The PA Marketplace - the available product categories
3030
9,419,6
30,438,9
50,463,4
78,7 83,4
109,2
130,7
172,2
93,4
0
15
30
45
60
75
90
105
120
135
150
165
180V
alue
of o
rder
s (m
ln €
)
.
200620072008
2006 2,9 5,1 7,9 9,7 12,5 15,4 18,0 18,9 21,2 24,7 29,3 38,0
2007 2,8 5,8 9,3 11,6 15,2 18,9 23,9 25,1 29,9 39,3 50,8 83,6
2008 9,4 19,6 30,4 38,9 50,4 63,4 78,7 83,4 93,4 109,2 130,7 172,2
January February March April May June July August September October November December
2.926 6.23811.899 13.903 18.733
23.65630.672 35.433
42.60251.209
63.245
28.691
0
20.000
40.000
60.000
80.000
Tran
sact
ions
n°
2006 779 1647 2812 3492 4559 5483 6342 6707 7596 8860 10046 11468
2007 766 1757 3035 3910 5271 6445 8119 8744 11069 14842 20289 28173
2008 2926 6238 11899 13903 18733 23656 28691 30672 35433 42602 51209 63245
January February March April May June July August September October November December
2009
230
73.000
The PA Marketplace - the business (transactions and value of orders)
3131
The PA Marketplace - some results, more in depth…
2004 2005 2006 2007 2008 2009 Note
Product categories 17 19 18 16 17 14
Focus on key categories (products and services)
“Active” Buyers 540 1.100 1.255 2.748 4.288 5.070 Out of 6.000 “registered”
buyers
On line Catalogues 324 771 1.146 1.809 3.692 5.477
SME’s represents more than 97% with strong presence (66%) of “micro” (< 10 employees)
On line items 113.207 190.484 226.748 332.465 539.725 1.355.985 87% ICT/Office supply
N° transactions 3.143 9.677 11.468 28.173 63.245 72.796
81% Direct Order 19% RFQ
Transaction value
8,3 mln €
29,8 mln € 38,2 mln € 83,6
mln €172,2 mln €
mio € 230,6overall:
mio €575,5
20% Direct Orders 80% RFQ Average value Direct
Order: 1.300 € Average value RFQ:
10.900€
3232
• Over 5000 suppliers making business on the emarketplace• 97% of enterprises registered are SMEs• 66% of the SME’s are micro enterprises ( < 10 employees)• More than 1.300.000 catalogue items
320 average transactions per working day
80% of the enterprises who used it in 2008 continued also in 2009 (with 17% increase in their turn over)
105.000 euro is the average yearly turn over
43% of SMEs sell outside the borders of their region (domestic cross border business)
140 eMarketplace Supplier Training Desks all over the country
2009
The PA Marketplace - some results
33
The Jury’s motivation: the MEPA winner in category 2b “…as it is a highly innovative initiative. Its impact is high for government administrations but most importantly for SMEs as they can offer goods and services which are relevant for public administrations… The MEPA has also ensured user take-up through communication plans and training. More specifically through the setting up of training desks responding to specific needs shown by the enterprises using the system…”
This award given to Consip represents an acknowledgement to the MEPA for having improved and facilitated the access to public procurement to enterprises, especially SMEs. At the same time MEPA contributes to rewarding the valiant effort the Italian PA and suppliers are making towards modernization.
More information on:www.epractice.eu/en/awards
The PA Marketplace - The European eGovernment Awards 2009
34
1. A FA is “an agreement between one or more contracting authorities and one or more economic operators, the purpose of which is to establish the terms governing contracts to be awarded during a given period”
2. Where a FA is concluded with several economic operators and not all the terms of the contracts are laid down in the FA (“incomplete” FA), specific contracts can be awarded by the CAs by reopening competition “on the basis of the same and, if necessary, more precisely formulated terms, and, where appropriate, other terms referred to in the specifications of the framework agreement”.
3. Nevertheless, “When awarding contracts based on a framework agreement, the parties may under no circumstances make substantial amendments to the terms laid down in that framework agreement”.
4. Supply contracts (specific contracts, SC) based on FAs are concluded between a single CA and a single supplier.
The new purchasing procedures - The framework agreements
four kinds of FA
Framework contracts
•1 supplier•Complete (all terms fixed)
•Several suppliers•Complete (all terms fixed)
•1 supplier•Incomplete (not all terms laid down)
•Several suppliers•Incomplete (not all terms laid down)•2-stage: competition shall be reopened
35
1. Entirely digital purchasing process2. For purchases above and below the EU threshold3. Based on Indicative Bids (maybe an e-Catalogue) that can be, later,
up-to-date to qualify to a Call for Tenders4. Maximum 4 years5. Call for Qualification to DPS contains:
• List of Commodities, Categories, Meta-products• List of requested Business Attestations (i.e. Certifications)• (eventually attached to Call for Qualification) Technical Specs.,
S.L., Terms & Conditions• Awarding Criteria for the following Call for Tenders
6. No dead-line, for Suppliers, to present Request for Qualification (Open Procedure)
7. Supplier’s Request for Qualification has to be evaluated within 15 days
8. Public Buyers buy in only one way: publishing a Call for Tenders (Open Procedure), inviting all the Suppliers that qualified before the dead-line, sending the Request for Quotation and receiving Suppliers’ Bids
The new purchasing procedures - The dynamic purchasing system
36
•1 supplier•with negotiation
Framework Agreement
Dynamic Purchasing
System
Supply side…
Buy side
Framework Framework ContractsContracts
•1 supplier•fixed condition
•Standard
•Customised
•Concentrated•Standardized
•Fragmented•Specialised
• The adoption of different tools is related to the market (buy and supply side) characteristics• More business opportunities for SME’s through e-procurement
MEPAMEPA
Evolution of the e-Procurement tools
•mult. suppliers•fixed conditions
•mult. suppliers•with negotiation