PROCUREMENT GUIDANCE

Project Procurement Strategy

for Development
Long Form Detailed Guide

July 2016
 Published July 1, 2016 – First Edition

Copyright
© 2016
The World Bank
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Common Abbreviations and Defined Terms
Common Abbreviations and Defined terms

This section explains the common terms and abbreviations used in this Guidance Document.
Defined terms are written using capital letters.

Abbreviation / term Full terminology / definition

BAFO Best and final offer.

Bank IBRD and/or IDA, being organizations that are part of the World
Bank Group. The Bank may be acting on its own account or in
its capacity as administrator of trust funds provided by other
donors.

Bid An offer, by a firm or joint venture, in response to a Request for

Bids, to provide the required Goods, Works or Non-consulting
Services.

Bidder A firm or joint venture that submits a Bid for Goods, Works, or
Non-consulting Services in response to a Request for Bids.

BOO Build, own, operate.

BOOT Build, own, operate and transfer.

Borrower The Borrower or recipient of Investment Project Financing (IPF).

This term may include any entity of the Borrower that is
involved in the implementation of a Project financed by IPF.

BOT Build, operate, and transfer.

CDD Community-driven development.

CIP Incoterm meaning Carriage and Insurance Paid to (named place

of destination).

Competitive Dialogue A selection method for Goods, Works or Non-consulting

Services described in Paragraphs 6.39 to 6.41 and Annex XIII of
the Procurement Regulations.

Complaint A procurement-related complaint as described in Paragraphs

3.26 to 3.31 and Annex III, Procurement-related Complaints of
the Procurement Regulations.

Consultant A variety of private entities, joint ventures, or individuals that

provide services of an advisory or professional nature. Where
the Consultant is an individual they are not engaged by the
Borrower as an employee.
Abbreviation / term Full terminology / definition

Consulting Services Covers a range of services that are of an advisory or

professional nature and are provided by Consultants.
These Services typically involve providing expert or strategic
advice e.g., management consultants, policy consultants or
communications consultants. Advisory and Project related
Consulting Services include, for example: feasibility studies,
Project management, engineering services, finance and
accounting services, training and development.

Core Procurement The Bank’s Core Procurement Principles as set out in Section III.
Principles C of the Bank Policy: Procurement in IPF and Other Operational
Procurement Matters.

CQS Consultant’s qualifications based selection.

EOI Expression of Interest.

FA Framework Agreement.

FBS Fixed-budget Based Selection; a method of evaluating the

selection of Consultants where Proposals are based on a fixed
budget.

Fraud and Corruption The sanctionable practices of corruption, fraud, collusion,

coercion and obstruction defined in the Anti-Corruption
Guidelines and reflected in paragraph 2.2a of Annex IV of the
Procurement Regulations.

Goods A category of procurement that includes: commodities, raw

material, machinery, equipment, vehicles, Plant, and related
services such as transportation, insurance, installation,
commissioning, training, and initial maintenance,

IBRD International Bank for Reconstruction and Development, which

is part of the World Bank Group.

IDA International Development Association, which is part of the

World Bank Group.

Incoterms The international commercial terms for goods published by the

International Chamber of Commerce (ICC).

Initial Selection (IS) The shortlisting process used prior to inviting request for
Proposals in the procurement of Goods, Works or Non-
consulting Services.

Investment Project The Bank’s financing of investment Projects that aims to

Financing (IPF) promote poverty reduction and sustainable development. IPF
supports Projects with defined development objectives,
Abbreviation / term Full terminology / definition
activities, and results, and disburses the proceeds of Bank
financing against specific eligible expenditures.

LCS Least-cost-based Selection: a method of evaluating the

selection of Consultants based on the lowest price.

Legal Agreement An agreement with the Bank providing for a loan for a Project,
including Procurement Plan and all documents incorporated by
reference. If the Bank enters into a Project agreement with an
entity implementing the Project, the term includes the Project
agreement.

Most Advantageous As defined in Annex X, Evaluation Criteria of the Procurement

Bid/Proposal Regulations.

NGO Non-governmental Organization.

Non-
Non -consulting Services: Services, which are not Consulting Services. Non-consulting
Services are normally bid and contracted on the basis of
performance of measurable outputs, and for which
performance standards can be clearly identified and
consistently applied. Examples include: drilling, aerial
photography, satellite imagery, mapping, and similar
operations.

PESTLE A PESTLE (Political, Economic, Social, Technology, Legislative

and Environment) is an analysis tool for supporting assessment
of each of these factors.

Plant A category of procurement relating the provision of equipped

facilities, such as those executed on the basis of design, supply,
installation, commissioning, maintenance, modification and
protection.

PPP Public-Private Partnership.

Prequalification The shortlisting process, which can be, used prior to inviting
request for Bids in the procurement of Goods, Works or Non-
consulting Services.

Probity Assurance A third party that provides specialist probity services for
Provider concurrent monitoring of the Procurement Process.

Procurement Approach Procurement approach is the overall design of “fit for purpose”
procurement to award contracts that deliver the Project
Development Objectives and Value for Money. This includes the
procurement arrangements, procurement risk management,
contract strategy, market engagement, requirements drafting
and contract management (where appropriate).
Abbreviation / term Full terminology / definition

Procurement Procurement arrangements are the combination of Selection

Arrangements Methods and Market Approaches.

Procurement Plan The Borrower’s Procurement Plan for IPF Projects, as referred
to in Paragraphs 4.4 and 4.5 of the Procurement Regulations,
and incorporated by reference in the Legal Agreement.

Procurement Process The process that starts with the identification of a need and
continues through planning, preparation of specifications/
requirements, budget considerations, selection, contract
award, and contract management. It ends on the last day of
the warranty period.

Procurement Regulations The “World Bank Procurement Regulations for IPF Borrowers”.

Project Procurement A Project-level strategy document, prepared by the Borrower,

Strategy for Development that describes how procurement in IPF operations will support
(PPSD) the development objectives of the Project and deliver VfM.

Proposal An offer, in response to a request for proposals, which may or

may not include price, by one party to provide Goods, Works,
Non-Consulting Services or Consulting Services to another
party.

Proposer An individual entity or joint venture that submits a Proposal for

Goods, Works, and Non-consulting Services in response to a
request for proposals.

QBS Quality-based Selection.

QCBS Quality and Cost-based Selection.

REoI Request for Expressions of Interest.

RFB Request for Bids as a selection method.

RFP Request for Proposals as a selection method.

RFQ Request for Quotations as a selection method.

Shortlist The shortlisting process used prior to inviting request for

Proposals in the procurement of Consulting Services.

SOEs
SOEs State-owned Enterprise or institution.

SPDs The Bank’s Standard Procurement Documents.

Standard Procurement Procurement documents issued by the Bank to be used by

Documents (SPDs) Borrowers for IPF financed Projects. These include, GPN, SPN,
EOI, REOI, Standard Prequalification documents, Initial
Abbreviation / term Full terminology / definition
Selection documents, Request for Bids Documents, and
Request for Proposals Documents.

SWOT A SWOT (Strengths, Weaknesses, Opportunities and Threats)

is analysis is a tool that can support the Borrower Capability
assessment, Market Analysis and Procurement Risk
Assessment.

TOR Terms of Reference.

UN Agency UN Agency broadly refers to the United Nations departments,

specialized agencies, and their regional offices, funds, and
programs.

VfM Value for Money.

Works A category of procurement that refers to construction, repair,

rehabilitation, demolition, restoration, maintenance of civil
work structures, and related services such as transportation,
insurance, installation, commissioning, and training.
Contents
Contents

Page

Section I. Introduction ........................................................................................................ 1

Section II. Background .........................................................................................................3

Selecting the Appropriate PPSD Template ..............................................................3

PPSD Preparation and the Project Cycle ................................................................... 4

Overview ...........................................................................................................................5

The Three “D” Procurement Planning Approach.......................................................6

Design ................................................................................................................................6

Demonstrate. ...................................................................................................................6

Deliver ............................................................................................................................... 7

The Contents of a PPSD ................................................................................................ 7

Section III. Project Overview ................................................................

......................................................................................
...................................................... 9

Section IV. Strategic Assessment of Operating Context and Borrower

Capacity ................................................................
................................................................................................
..................................................................
.................................. 11

4.1 Operational Context ........................................................................................................ 11

4.2 Assessment of Borrower Capability and Project Implementation Unit ................ 13

4.3 Market Research and Analysis. ..................................................................................... 15

4.3.1 Supply Positioning Model................................................................................................ 15

4.3.2 Markets .............................................................................................................................. 18

4.3.3 Why Do Market Analysis? ............................................................................................... 18

4.3.4 Market Analysis Scope ................................................................................................... 19

4.3.5 Market Analysis Outputs ............................................................................................... 20

4.3.6 Sources of Information. ............................................................................................. 22

 4.3.7
.7 Market Engagement ....................................................................................................... 23

4.3.8 Previous Borrower and Bank Experience of Similar Projects. ................................ 25

4.3.9 Project and Contract Cost ............................................................................................. 25

4.3.10 How to Undertake Market Analysis............................................................................. 26

4.3.11 Supplier Preferencing ..................................................................................................... 26

Section V. Procurement Risk Analysis ................................................................

.................................................................
................................. 29

5.1 Approach to Procurement Risk Analysis .................................................................... 30

Section VI. Stakeholder Analysis ................................................................

...........................................................................
........................................... 35

6 .1 Stakeholder Identification ............................................................................................. 35

6.2 Identification of Stakeholder Objectives .................................................................... 36

6.3 Stakeholder Interest - RACI Analysis.......................................................................... 37

6.4 Stakeholder Management Approach ........................................................................... 37

Section VII. Procurement Objectives ................................................................

......................................................................
...................................... 39

7.1 Drafting Procurement Objectives. ............................................................................... 39

7.2 RAQSCI Model .................................................................................................................. 40

Section VIII. Design of Procurement Approach and Recommendation .............. 43

8.1 General Considerations in Designing a Procurement Approach ............................ 46

8.2 Design of the Procurement Approach .......................................................................... 51

8.1 Requirements ................................................................................................................... 52

8.2 Contract Strategy ........................................................................................................... 55

8.1 Selection Methods........................................................................................................... 63

8.2 Evaluation Methods ......................................................................................................... 81

8.1 Contract Management ................................................................................................... 85

Section IX. Preferred Arrangement for Low-
Low -Value Low-
Low-Risk Activities ......... 91

Section X. Summary of PPSD to Support the Preparation of the PAD by the

Bank. ................................................................
................................................................................................
.......................................................................
....................................... 93

Annex I. Long Form PPSD Template ........................................................................................... 95

Annex II. How to undertake Market Analysis ........................................................................... 105
Annex III. Specifications.................................................................................................................. 131
 Project Procurement Strategy for Development Long Form Detailed Guide
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Section I. Introduction
Section I.
I. Introduction

The Project Procurement Strategy for Development (PPSD) is a methodology that is used to
determine the optimum procurement approach to deliver the right procurement result.
This Procurement Guidance is for use when drafting the Long Form Project Procurement
Strategy for Development (PPSD) which is used for the highest value and / or risk
procurements financed by the Bank. This detailed Guidance provides a structured approach
for Borrowers to use a modern procurement set of tools and techniques to achieve best Value
for Money (VfM) in Projects financed through Investment Project Financing (IPF).
The level of detail in the PPSD should be proportionate to the risk, value, context, nature
and complexity of a Project/contract.
As with the overall preparation of the PPSD, the use and application of these tools needs to be
proportionate to the level of market research and information required to develop a “fit for
purpose” procurement approach. There is not an expectation that all the procurement tools
will be used, but only those most appropriate to the individual Project/contract circumstances.
The PPSD asks the Borrower to consider, among other things, the market situation, the
operational context, previous experience and the risks present – then from this, determine the
right procurement approach that will yield the right type of response from the market. By
designing the right procurement approach, there is far more likelihood of the right bidders
participating, better bids being received, and an overall increased chance of achieving value for
money. Therefore, determining the right procurement approach, informed by appropriate
analysis, is a critical activity that subsequently impacts every following step of the
procurement process, and onwards into Project implementation.
This detailed PPSD Guidance should be read in conjunction with the Procurement Regulations
for IPF Borrowers. This guidance should also be used as a good technical resource for
Borrowers seeking to apply strategic procurement more generally.
For reference, there are a series of short training videos that explain the use of key
procurement tools in the PPSD process, see [Link]/procurement. Examples of
completed Long Form PPSDs will be published as soon as they are available.
For lower value / risk procurements please see the short form PPSD guidance.

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Section II. Background

Section II.
II. Background

The PPSD and the Procurement Plan are documents that the Borrower prepares as part of the
Project preparation process for Projects financed through IPF. The Bank reviews the PPSD
together with the Procurement Plan as part of Project appraisal and reaches agreement with
the Borrower on the Procurement Plan no later than completion of loan negotiations.

No formal clearance of the PPSD is required, however, the PPSD summary (as detailed below),
will form part of the Bank’s Project Appraisal Document (PAD), that summarizes all activities
relating to a Project’s preparation and the Bank will consider the PPSD summary as part of the
overall PAD package and determine whether the whole package can be cleared.

The agreed outputs from the PPSD are summarized by the Bank and included in the Bank’s
PAD. Also as part of Project preparation, a Procurement Plan is prepared based on the analysis
in the PPSD and this is subject to the Bank’s no objection. The Procurement Plan should be
updated periodically to reflect actual needs and changing circumstances. Any updates to the
Procurement Plan should be submitted to the Bank for its review and no objection. Any
changes to the Procurement Pan should be justified, as appropriate, by the Borrower through
a revised PPSD.

In situations of urgent need of assistance because of a natural or man-made disaster or

conflicts recognized by the Bank, the Borrower should only prepare a high-level, summary
PPSD, as soon as practicably possible. In these situations, the PPSD can be reviewed with the
Bank later during implementation.

A PPSD is a structured, analytical approach that is designed to support procurement planning

with the aim of developing the right procurement approach to enables Borrowers to achieve
VfM with integrity in delivering sustainable development.

This Guidance has been structured in a linear manner to help the Borrower fill out the detailed
PPSD template. As the Borrower completes the PPSD sequentially, there may be a need to
revisit earlier Sections based on information gathered in a subsequent Section.

Selecting the Appropriate PPSD Template

Most Projects will use the Short Form PPSD Template and the associated Short Form PPSD
Guidance.

For those Projects that have significant procurement contracts (by value and risk) the Long
Form PPSD Template should be used as detailed in Annex I. Figure 1 overleaf details the type
of procurement/contract, risk, and value thresholds that should be used to determine when
the Long Form PPSD Template should be completed. If a Project meets the criteria in in
figure 1,
1, then a Long Form PPSD is required to be completed for the Project (i.e. if a

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procurement is a “Works” procurement, and it is low risk, and it’s value is greater than or equal
to US$200m, a Long Form PPSD must be completed.)

The procurement risk rating as shown in the Figure 1 should be agreed between the Borrower
and the Bank. The Borrower and the Bank should also agree when a Long Form PPSD is
required.
Figure 1 – Thresholds for Completing a Long Form PPSD

Further analysis of the procurement risks associated with individual contracts or the Project
is undertaken Section V of the PPSD Guidance.

PPSD Preparation and the Project Cycle

The preparation of the PPSD should begin as early as possible in the Project Cycle, which
normally will be at the Project Concept stage, once the major contracts in the Project have
been identified. Where circumstances allow, the Borrower should start the preparation of the
PPSD after the Project feasibility stage where decisions on the technical solution and
associated contract types (see Section 8.4 Contract Strategy of the PPSD Guidance) start to
be made.

The PPSD provides the basis for preparing the Procurement Plan, which includes a description
of the procurement contracts, the procurement risks, the contract values, the approach(s) to
market and the selection methods. One, single, Long Form PPSD should be prepared for all
contracts that are required for a Project. The PPSD should describe the procurement approach
in sufficient detail for all the procurements to be undertaken during, at least, the first 18
months of the Project and should be updated for the remaining procurements, as important
information becomes known. Accordingly, a Procurement Plan should be prepared and agreed
with the Bank for the first 18 months of the Project prior to completion of loan negotiations.
The Procurement Plan should be updated every 12 months or earlier.

The information available to support the development of the PPSD will be different for each
Project and there may often be information gaps that need to be addressed through research
and market engagement (as further detailed in Section IV of the PPSD Guidance).

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A single Long Form PPSD should be prepared for all Projects that have one or more contracts
over the thresholds stated in Figure 1. The level of detail in the PPSD should be
Project.. Section 4.3.1
proportionate to the risk, value, context, nature and complexity of a Project
of the PPSD Guidance, Supply Positioning, details a procurement technique that can be used
to determine where research and analysis should be focused for preparing the PPSD and any
subsequent updates.

A Procurement Activity Schedule is not required. The justification for all procurement
approaches must be included in the PPSD and the Procurement Plan, including any revisions.
Therefore, the PPSD may involve research and analysis of multiple marketplaces, with a
number of procurement approaches designed for each market.

Overview
The PPSD is the cornerstone for ensuring that the procurement approach is properly planned
and designed. This will enable the selection of the most appropriate suppliers by providing the
suppliers with the best opportunity to demonstrate the value they can offer through the
selection process.

The best opportunity for achieving VfM in contracts is at the planning stage of the
procurement process. The PPSD is structured to ensure that consideration is given to all the
appropriate procurement tools, techniques and methods at this planning stage. It is also
structured to provide the earliest opportunity for VfM to be designed into the procurement
approach before the formal procurement process commences. Figure 2 demonstrates the
importance of early procurement planning. For additional context on VfM, see guidance
document at [Link]/procurement.
Figure 2 – Opportunity and Influence in Delivering VfM in the Procurement Process

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Additionally, the active management of the contracts within a Project post-award helps to
ensure that suppliers meet their contractual obligations and are incentivized and enabled to
deliver VfM.

The Three “D” Procurement Planning Approach

The World Bank’s strategic approach to procurement for delivering VfM is structured around
three stages outlined in Figure 3 and further described in the Sections below.
Figure 3 – The Three “D” Procurement Planning Approach

Design
The Design stage is documented in the PPSD and will result in a set of proposed “fit for
purpose” procurement approaches for the contracts within a Project that have been justified
by appropriate and proportionate levels of research and analysis. A “fit for purpose”
procurement approach is the optimum tailored procurement approach for delivering the
Project Development Objectives (PDOs) taking into consideration the individual
circumstances, and business and operating environment of that particular procurement.

Demonstrate
The Demonstration stage is primarily about evaluation of bids and proposals. It is a critical
procurement stage and must be planned carefully to ensure that the evaluation method
considers a range of criteria that adds value, reduces risk and evaluates costs over the life

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cycle of the procured assets. This approach will ensure suppliers are given the best
opportunity to demonstrate their value proposition in their bids or proposals throughout the
selection process.

Detailed guidance on the use and application of evaluation criteria is available in a separate
guidance document, see [Link]/procurement.

Deliver
The Delivery stage focuses on actively managing contracts to ensure that the VfM that has
been designed into the procurement approach is operationalized through effective contract
management.

Detailed guidance on the use and application of Contract Management is available in a separate
guidance document.

The Contents
Contents of a PPSD
The Long Form PPSD takes the Borrower through a series of key stages that help shape the
design of the procurement approach to produce a “fit for purpose” set of procurement
arrangements. The procurement approach should be designed to ensure that the suppliers
(including contractors and consultants) that are most capable of delivering VfM and the PDOs
are motivated to bid, and that the right supplier is ultimately selected for award.

A “fit for purpose” procurement approach should be outlined within eight Sections of the PPSD
Template as follows:

1. Project Overview;
2. Strategic Assessment of Operating Context and Borrower Capability;
3. Procurement Risk Analysis;
4. Stakeholder Analysis;
5. Procurement Objectives;
6. Procurement Approach Options and Recommendations;
7. Preferred Arrangement for Low-Value Low-Risk Activities;
8. Summary of PPSD to Support the Preparation of the PAD by the Bank.

A detailed description of the content that should be considered in each PPSD Section of the
PPSD Template (Annex I) can be found in this Guidance.

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Section III. Project Overview

Section III.
III. Project Overview
This part of the PPSD template (Annex I) is mainly descriptive; its purpose is to briefly
summarize the Project in terms of scale and requirements. Much of the information required
here should be drawn from the Project Concept Note.

In addition to the data elements in Figure 4, there are five elements that should be included in
the Project Overview outlined in A-E below:

Figure 4 – Project Overview

A. Project Description — For each contract/sub-contract, there should be a short

description of what is required from suppliers including the cost estimate;
B. Project Development Objectives (PDOs) — The PDOs should be consistent with the
PDO identified in the Project Concept Note;
C. Result Indicators — Result indicators should be “SMART” indicators (Specific,
Measurable, Attributable, Relevant, and Time-bound) and linked to Project outcomes.
Each PDO should be measured by one or more outcome indicators;
D. Proposed contract summary — A summary of the proposed contracts within the
Project including a Supply Positioning model for identified contracts;
E. Legal/Policy Requirements — A statement of any legal or policy requirements such as
the application of Alternative Procurement Arrangements, use of Stated Owned
Enterprises for restricted contracts such as aerial mapping, and any policy
requirements including sustainability requirements.

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Section IV. Strategic Assessment of Operating
and IVBorrower
Section IV.
. Strategic
Capacity
Str ategic Assessment of Operating Context and Borrower Capability
C apability

This part of the PPSD template (Annex I) assesses three different but interrelated dimensions
of capability and risk:

• Operational Context;
• Borrower Capability;
• Project Implementation Unit (PIU) and Market Analysis.

This Section of the PPSD is designed to provide the appropriate and proportionate levels of
research and analysis that will inform and provide the justification for the procurement
approach and support the analysis required to complete the remaining Sections of the PPSD.

At the end of Sub-Section of the PPSD Template, the Borrower is required to document the
conclusions that can be made based on the individual assessments. The conclusions should be
focused on the factors that will need to be considered and addressed in the procurement
approach.

The outputs of the Strategic Assessment section include the following:

• Resourcing Plan — The Borrower’s view on any capability building requirements

needed to augment their own resource levels (Section 4.2 of the PPSD Guidance);
• Market Engagement Plan — The approach the Borrower takes to directly engage with
suppliers to provide feedback and ideas on their specified requirements and to create
marketplace interest in bidding for contracts (Section 4.3 of the PPSD Guidance);
• High
Hi gh Level Procurement Approach Options — an overview of the options available
for the procurement approach for each contract (Section 4.3 of the PPSD Guidance).

4.1 Operational Context

The PPSD should analyze and take into consideration the operational context factors that may
affect the procurement approach, the motivation of bidders to participate, and the success of
any subsequent contracts. Most of this information is available through research and analysis
undertaken by the Bank and presented in the Project preparation documents for the Project
and in other similar Projects. This should include:

A. Governance aspects: fragile or conflict-affected situations that may raise security

concerns; state involvement in the specific economic sector (such as state owned
enterprises receiving government subsidies), legislative processes that may regulate
the market/bidders; the overall legal framework; and disaster or emergency situations;
B. Economic aspects: a small economy that may result in a lack of competition or
difficulty attracting international bidders; high inflation that may require use of

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another currency or inflation protection terms that protect a bidder so they are
motivated to participate; any domestic preference that may motivate local businesses,
but endanger international competition; track record of on-time payment, and
exchange rate volatility;
C. Sustainability aspects: sustainable procurement requirements, such as use of
government environmental standards (e.g. energy/water efficiency targets); social
impacts associated with working in sensitive environments; importing of labour and
labour standards;
D. T echnological aspects: speed of technological change; need for information transfer
and security so there is not a continued dependency on the bidders; internet access
and restrictions; cell phone access and coverage; opportunity for, and dependency on,
the use of technology for Project delivery.

A PESTLE (Political, Economic, Social, Technology, Legislative and Environment) analysis is

a useful tool for supporting this assessment. A full explanation of a PESTLE analysis is
detailed in Annex II, but the diagram below illustrates some of the points to be considered
in undertaking the Operational Context assessment using a PESTLE.

The PESTLE analysis will provide a lot of information so it is important to consider what the
findings actually mean for the procurement approach. The priority is to identify factors that
could impact the procurement approach both positively and negatively, while drawing
conclusions from this information to inform the procurement approach that is being designed
and detailed in the PPSD.

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The PESTLE is particularly helpful at identifying risks, which should be considered as part of
Procurement Risk Management Plan in Section V of the PPSD Guidance.

4.2 Assessment of Borrower Capability and Project Implementation

Unit (PIU)

The objective of this assessment is to identify any known factors, both enablers and
constraints, which may have an impact on both the delivery of the Project and the
procurement approach being developed. This assessment is independent of the assessment
that the Bank undertakes on the Borrower’s capability in the PAD. It should also help identify
any targeted early interventions such as training or enhanced support that the Borrower may
benefit from, whether from the Bank, or other sources.

The Borrower should consider the following factors in assessing their capability and resource
needs to plan and design the procurement approach and the subsequent implementation:

A. Previous experience/track record (good and bad) in implementing similar

Projects/procurements and implementing World Bank Projects;
B. Contract Management capacity and capability to follow through on commitments
made during the procurement process and contained in the contract award;
C. Track-record and market reputation for making contractual payments on-time;
D. Complaints Management and dispute resolution systems that are credible,
independent, and engender trust in all parties, through prompt/fair dealing of
complaints;
E. Procurement capacity (previous experience, technical capability in designing and
preparing specifications and bidding documents, experience in supervision of
construction contracts (if applicable), testing of procured items, availability of
resources and track record) to undertake successful fit for purpose procurement
planning, procurement process, bid/proposal evaluation, supplier selection, and
contract award;
F. Reliance on, criticality of, and use of professional advisors such as consultants to
augment Borrower capability;
G. Project implementation arrangements;
H. Administrative arrangements, including delegated authority levels to facilitate timely
decision making;
I. Inspection arrangements;
J. Contract packaging;
K. Lessons learned from the implementation of other similar Projects;

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L. Reliance on, criticality of, and use of professional advisors such as consultants to
augment Borrower capability;
M. Experience using Alternative Procurement Arrangements; and
N. The need to request Bank hands-on expanded implementation support.

Section 4.3.8 of the PPSD Guidance, Previous Borrower and Bank Experience of Similar
Projects, also lists a series of questions the Borrower should consider when preparing this
Section of the PPSD.

The use of a SWOT (Strengths, Weaknesses, Opportunities and Threats) analysis is a tool that
can support the Borrower Capability assessment. Annex II provides an overview of a SWOT
analysis. The table below details some of the considerations and questions Borrowers may
wish to take into account in preparing this Section of the PPSD.

The Borrowers assessment of its previous experience, capability, strengths and weaknesses
should be supported, demonstrated and corroborated by reference to credible third party
audit reports or similar documentation. In developing the procurement approach the Borrower
should demonstrate experience in undertaking similar types of procurement (and
procurement arrangements) and successful implementation. Where the proposed
procurement approach hasn’t been used previously (or were not previously successfully
implemented), the Borrower should explain how they would obtain the capability and capacity

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to implement the procurement approach. Any associated risks should be considered as part
of the Procurement Risk Analysis in Section V of the PPSD Guidance.

At the end of this Section a Resourcing Plan should be created. This is the Borrower’s view on
any capability building requirements needed to augment their own resource levels.

4.3 Market Research and Analysis

The objective of market research and analysis is to develop an appropriate understanding of
the market sectors that have been identified as having the potential to bid for the goods,
services, and/or works required for a contract within a Project. This is to ensure the eventual
procurement approach maximizes the likelihood of the right bidders participating, and the
right supplier being selected (minimizing failed procurement processes due to no bids, or the
wrong type of bids).

This Section of the PPSD should explain how a market works and how this impacts the
Borrower’s approach to the market. It should look at the market from both the perspective of
the Borrower and suppliers operating in that market, simply to determine, what will motivate
the right suppliers to participate in the procurement.

This information should then be analyzed to design the procurement approach to ensure the
right markets and suppliers are targeted, so that the procurement approach maximizes
market interest – noting that high value/profile procurement is not always sufficient
motivation for the right bidders to participate.

Most Projects will have multiple individual procurement contracts, many of which will be low
value and low risk. A Supply Positioning model as described in Section 4.3.1 of the PPSD
Guidance below should be used to assess how much analysis each of the contracts in a Project
will require, ensuring a proportionate approach is taken on the overall analysis of all contracts.

4.3.1 Supply Positioning Model

Supply Positioning is a procurement technique that can be used to determine where research
and analysis should be focused in preparing the PPSD and any subsequent updates. It simply
categorizes specific procurements based on their relative supply risk and value.

Each contract (or category of contracts, if there are many contracts that are the same) should
have an assessment of its supply risk and relative value in order to position the contract on
the Supply Positioning matrix as shown in Figure 5.

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Figure 5 – Supply Positioning Model

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Supply Positioning is a tool to help:

• Determine the appropriate level of analysis and focus for each contract within the
Project;
• Estimate how much time, effort, and due diligence is required; and to
• Identify where the Borrower should focus its effort, and in what manner.

Supply Positioning should be carried out at a Project level. Each contract within the Project is
then assessed in terms of the following supply risk factors:

• Borrower skills and previous experience in procuring and managing this type of
contract;
• Difficulty of specifying, or the uniqueness of the Project/contract requirements;
• Competitiveness of the market and the number of potential suppliers in the market;
• Contract implementation risks; and
• Criticality of the contract to Project delivery and PDOs.

The combined assessment of these supply risk factors should be categorized, rated, and
ranked. Each contract should be plotted on the Supply Positioning Model.
The relative cost estimate of each contract should be plotted on the x-axis. Relative cost in
Supply Positioning is a relative value and is calculated on the basis of the relative cost of the
contract when compared to the estimated total Project procurement cost. The determination
of high cost is typically any contract that is 1% or more of the estimated total Project
procurement costs. Mapping contracts in the Supply Positioning Model will place the contract
in one of the four named quadrants. Contracts shouldn’t be artificially broken down into
smaller lots at this stage (although that could be appropriate once the PPSD analysis is
complete and determines that this is required as part of the procurement approach), while the
opportunity to package similar contracts together should also be considered in the preparation
of the PPSD.
If any contract in a Project is categorized as Tactical Acquisition, this indicates a relatively low
level of supply risk and therefore requires proportionately less research and analysis. If any of
the contracts are categorized as Strategic Security or Strategic Critical, this indicates a
relatively high level of supply risk and therefore requires a greater level of analysis, due
diligence, and effort to be applied (see Annex II for detailed tools and techniques to support a
market analysis).
Supply Positioning should be used as a guide to determine the level of effort required. Under
normal circumstances, contracts that are Tactical Acquisition or Tactical Advantage can have
the procurement approach summarized in Section 7 of the PPSD Template (Preferred
arrangement for lower value lower risk activities). The main exception to this, is where the
preferred procurement approach is either not fully competitive or is inherently risky, such as

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competitive dialogue or negotiations. In these circumstances a more robust analysis and

justification is required.
On completion of the Supply Positioning assessment, the Borrower should use its judgement
to make sure the contract placement on model is realistic. The use of Supply Positioning at
this stage of the PPSD preparation is designed to help Borrowers identify where effort needs
to be focused. Where data or information is not available, the Borrower should state their
“assumptions” and use their best judgement. These “assumptions” and judgements should be
reviewed as the PPSD is being prepared and if necessary the Borrower should revisit the
Supply Positioning assessment, if there are any material changes to the assumptions and / or
judgements made.

4.3.2 Markets
The definition of a market is broad. It can be where:

• Buyers and sellers come together; and

• Providers of goods, works and services operate;

Markets can be complex and they are often segmented based upon factors such as scale,
specializations, or geography (e.g., transport sub-segments can include heavy engineering,
rural roads infrastructure, highways and bridges).
Some suppliers can be generalists, covering a whole segment, while others may be specialists,
operating in a single sub-segment.
Therefore a market analysis needs to consider the supply chain and identify the markets and
suppliers that exist at different points in the supply chain. For example, in a construction
market, this could be quarries, converters, manufacturers, installers, consultants and prime
contractors.

4.3.3 Why Do Market Analysis?

Analysis ?
The benefits of market analysis include:

• It will ensure that contract lots are designed to align with the target market;
• Supplier awareness, engagement, and opinion will lead to increased confidence around
the procurement approach being followed and encourage a competitive bid;
• Insight will be gained into market possibilities and potential innovative solutions;
• A better understanding of risk at an earlier stage of the Project cycle will ensure the
selected procurement approach is designed to manage or mitigate identified risks; and
• There will be a better understanding of where a Project’s requirements fit into the
market place, the market place’s capability of meeting those requirements and how
the requirements could either be shaped to fit the market place or how the market
place needs to be shaped to meet the requirements.

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4.3.4 Market Analysis Scope

Market analysis is undertaken to gain a common understanding of the current supply market
in order to be able to clearly:

• Identify the type of market;

• Describe the nature of competition and how it really works;
• Establish supply market capability;
• Estimate the total and available supply market capacity;
• Know the factors influencing the market, and how they may effect bidder
participation;
• Understand how factors influencing the market may drive change and the impact of
this change;
• Know who the key suppliers are and their plans for the future;
• Identify costs associated with the supply of goods, services and works;
• Identify pricing methods the suppliers use in this market;
• Establish pricing trends in terms of actual prices and pricing methods;
• Understand current best practice pricing methods and the availability of cost and price
benchmarks;
• Identify risk associated with a market and describe how the risk should be managed;
• Assess the Borrower’s previous experience achieving VfM when operating in similar
markets;
• Describe how other customers in the market achieve VfM, and get the right result; and
• Determine whether the Borrower’s contract is likely to have any positive or negative
impact on the market (Will the right suppliers bid? In the right way? To get the right
result).

Figure 6 illustrates many of the influences that need to be considered when undertaking
market research and analysis.

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Figure 6 – Supply Market Influences

4.3.5 Market Analysis Outputs

The output from market research and analysis should be an understanding of:

• The target market and any potential changes, particularly the impacts of changes in
supply and demand;
• How best to interact with the supply market to attract the right suppliers to bid;
• How the Borrower can maximize their influence with suppliers in the market;
• How suppliers will be motivated to bid and innovate;
• The expected levels of performance suppliers will provide;
• How the Borrower will incentivize suppliers to perform;
• A set of ideas for how VfM will be achieved; and
• How opportunities, threats, and risks will be managed at different procurement stages
(Pre-qualification through to Contract Management).

Typically, the market analysis should be structured into the headings below, which covers the
information obtained through the research but more importantly what this information means
for the Borrower when applied to the Borrower’s requirements.
This analysis should then be summarized into the following sections:

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A. Research
Research
1. Supply Positioning Model — Identify the risk and value thresholds of the Project;
2. Segmentation of the market by geography (local, national, international), and
specialization or differentiation;
3. Market sector dynamics — Nature and extent of competition, levels of experience,
capability and innovation, and external influences and factors;
4. Market trends — Technology, new services, ownership structures and alliances,
market growth, and new entrants;
5. Financial — Sources of cost and value, cost stability, pricing strategies and
mechanisms, and cost and financial benchmarks; and
6. Procurement trends — Procurement approaches of other entities procuring similar
contracts, typical contract terms, common issues that inhibit or contribute to
achieving VfM, typical responses, and lessons learned.

B. Analysis and Action

1. Market capability to meet the Borrower’s needs including typical experience levels,
package sizes, and financial performance;
2. Previous experience in the market by the Borrower and other customers including on
World Bank and non-World Bank Projects;
3. Market view of the Borrower (from a supplier’s perspective) in terms of attractiveness
for contracting with (e.g. reliability of payment, procurement capability, timeliness in
decisions, complaints handling, and imposing onerous conditions), i.e. are the right
suppliers likely to bid, noting these areas;
4. Modification to the requirements (if needed) to align them to the market’s capability,
or actions to influence the market place so that it is willing and able to meet the
requirements unchanged;
5. The nature of competition and what is needed to ensure appropriate levels of
participation;
6. Current good practice for procuring from the market including pricing methods, risk
allocation, and benchmarks of performance and cost;
7. Risks identified and a management plan based on allocating risk to the party best
placed to manage the risk; and
8. Markets risk tolerance (as there is usually a cost in transferring a risk to another party
and if the Borrower attempts to transfer too much risk to suppliers, it may result in
few or no supplier bids, or a bid that is too expensive to select).

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At the end of the market research stage, Borrowers should:

• Develop a Market Engagement Plan — the approach the Borrower takes to directly
engage with suppliers to provide feedback and ideas on their specified requirements
and to create marketplace interest in bidding for contracts; and
• Identify High Level Procurement Approach Options — an overview of the options
available for the procurement approach for each Project contract as outlined in Section
VIII of the PPSD Guidance.

4.3.6 Sources of Information

Information for market analysis can come from a variety of sources. As a starting point, where
possible, the Borrower should seek to use previous research/examine previous
experience/their track record for similar Projects/contracts in similar circumstances.
The next step is to augment this information with other sources. The World Bank has
numerous sources of market research that Borrowers may access to inform their procurement
decisions. This includes World Bank sector analysis and experience of counterparts in other
jurisdictions.
Sometimes the best approach is to talk to a number of suppliers to gather market intelligence
(of course without being overly influenced or directed to one supplier’s approach, to ensure
fairness) through Market Engagement. Borrowers are encouraged to engage early with
suppliers to build improved knowledge and understand the target market. This process must
be completed before advertising the opportunity to bid.
There is also a large amount of information available in the public domain to supplement Bank
and Borrower specific sources. These include:

• Project Feasibility Reports;

• Market analysis reports;
• Industry representative groups/trade associations/industry governing bodies;
• Specialist industry research groups;
• Government-sponsored industry consolidations;
• Trade journals;
• Supplier annual report and accounts;
• Contacts in other organizations;
• Internet searches;
• Own knowledge from previous Projects/contracts;
• Other buyers’ and Borrowers experiences;
• Commodity indices;

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• Government statistics;
• Government agencies and tax authorities;
• Stakeholder knowledge, e.g., World Bank sector specialists; and/or
• Suppliers.

Analysis of the market will often require more than just desk research. The Borrower should
engage with the market and suppliers to review the market, as appropriate. Figure 7 outlines
several sources of market information to consider:
Figure 7 – Sources of Market Information

4.3.7 Market Engagement

Market engagement is a way of discussing the Borrower’s requirements with a marketplace
and the suppliers it contains. It is particularly useful if there is a need to create a market or
increase supplier participation because of a lack of market interest, especially where there is
an incumbent supplier, or the requirement is novel.

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In undertaking market engagement Borrowers should ensure the core principles of fairness
and transparency are upheld by treating all potential suppliers equally. It is particularly
important that the Borrower manages the market engagement in a manner to avoid perceived
or actual conflict of interest situations, in the procurement process including but not
restricted to the market engagement itself, the final requirements / specification or selected
procurement arrangements.
Market engagement can help establish the marketplace’s ability to meet the Borrower’s
requirements, provide ideas on alternative approaches for meeting the requirements, highlight
potential risks early in the Project Cycle, and provide an insight into likely marketplace
interest. Simply, it can also motivate the right suppliers to bid. This information should then
be used to develop a procurement approach that manages risk in the right way for everyone,
is overall more attractive to the marketplace, generates greater competition, and ultimately
maximizes the opportunities to meet the Borrower’s PDOs.
Market engagement can be undertaken through a number of different ways including concept
viability exercises, supplier questionnaires, market sounding exercises, supplier conferences,
trade events, paid for market research, and publication of outline procurement strategies for
consultation.
Borrowers should consider the following when undertaking any Market Engagement:

• Engage early and widely with the marketplace and suppliers to give them an
opportunity to shape the requirement;
• Work with all suppliers on an equal basis to ensure openness of access to staff and
information;
• Establish good communication channels and keep potential bidders informed;
• Maintain genuine competition throughout the process — do not leave bidders in the
competition if you do not believe they are capable of winning;
• Be transparent about the procedures and top-level criteria for evaluation of bids;
• Maintain the commercial confidentiality of information received from suppliers;
• Be willing to consider commissioning pilots, paid studies, Proof of Concept exercises,
Design and Build exercises, etc.;
• Be open to novel approaches;
• Focus on the desired outcomes;
• Be willing to reconsider the requirement and scope, and the packaging of the
requirement for procurement;
• Be willing to consider a range of commercial/contractual options (e.g. multiple
suppliers, geographical split);
• Consider what the position will be in the event of future rebidding — frame the
requirement in a way that will help to avoid lock-in of the supplier;

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• Ensure you have the commitment and support of senior management in dealing with
the marketplace;
• Have a good understanding of the risks involved for both suppliers and the Borrower;
• Apply rigorous project management procedures to any procurement exercise and make
these visible to the marketplace and suppliers; and
• Ensure that all the necessary skills are available to the procurement project team.

4.3.8 Previous Borrower and Bank Experience of Similar Projects

Borrowers should work with the Bank to understand how Projects of a similar nature have
been delivered in the past. This analysis should not only focus on what didn’t go well and could
have been improved, but also what went well and why.
Areas to be considered include:
• What was the marketplace?
• Which suppliers bid and which suppliers declined to bid and why?
• Was the Project delivered to time, cost, and quality and why or why not?
• Were there any disputes and what was the cause?
• Overall were there good marketplace and supplier participation levels and why?
• What type of specification was used, did it deliver the right result and are there any
elements of that specification that may be relevant to this Project/contract?
• What type of procurement approach was used, did it deliver the right result, and are
there any elements of the specification that may be relevant to this contract;
• What was the approach to contract management and how effective was this at
keeping the Project and supplier under the right level of control?
• What resourcing did the Borrower use and were any areas identified post Project that
the Borrower would have benefited from additional capacity?

4.3.9 Project and Contract Cost

As part of the market analysis, Borrowers should pay particular attention to the likely costs
of each contract and make an assessment on whether the current contract estimate appears
contemporary and realistic. Data to benchmark costs can come from wide variety of sources
including previous experience in similar Projects, consultancy firms/technical advisors, cost
benchmark reports, government data sources and cost benchmarking firms.
Borrowers should use information gathered from market analysis to highlight any risks to
contract estimates caused by influences such as inflation, resource shortages, lack of market
capacity driving up prices, specific risks (such as logistical difficulties) within the Project that
may lead to suppliers loading their bids/proposals with high contingency sums, etc.

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Borrowers should also include any risks associated with contract cost estimates in the
Procurement Risk Management Plan.

4.3.10 How to Undertake Market Analysis

There are a number of procurement tools and techniques available to support market analysis
that help not only in structuring the research, but also for analyzing the information to draw
conclusions and develop the procurement approach.
The key tools and techniques to support market analysis are:
A. SWOT - Strengths, weaknesses, opportunities and threats;
B. Porter’s Five Forces Analysis;
C. PESTLE - Political, Economic, Social, Technological, Legal and Environmental;
D. Supplier Preferencing;
E. Supply Positioning and Supplier Preferencing;
F. Supply Chain / Value Chain Analysis.

As with the overall preparation of the PPSD, the use and application of these tools needs
to be proportionate to the level of market research and information required to develop
a “fit for purpose" procurement approach.
approach . There is not an expectation that all the tools will
be used, but only those most appropriate to the individual circumstances. For a detailed
description of each tool and technique, see Annex II.

4.3.11 Supplier Preferencing

One of most useful tools in supporting market analysis is Supplier Preferencing. Through its
application Borrowers can identify and describe the typical approach suppliers will take to
working with Borrowers based on their segmentation in the model. To determine the accuracy
of the assessment, the Borrower should consider real experience in how suppliers respond to
bids, the level of success and how suppliers react when there are implementation problems –
this serves as a general proxy to assess how important the Borrower is to that supplier as a
customer.
Supplier Preferencing is a tool that identifies how a supplier views a Borrower (as a customer)
and depending on this view, how the supplier is likely to behave. Supplier preferencing
categorizes these “views” into 4 segments as detailed in the diagram below. For a detailed
description of Supplier Preferencing and its application, see Annex II.
In high-level terms, this will determine how attractive the Borrower is as a customer to the
supplier. This in turn will determine the level of willingness or reluctance the supplier will
exhibit in wanting to bid for work and the corresponding level of effort the supplier will make
in meeting the Borrower’s requirements. This is a tool that helps determine the extent that
the Borrower can influence a market, through its procurement approach, to achieve the PDOs
and Procurement Objectives (see Section VII of the PPSD Guidance).

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Again, the value of a contract does not in itself make a procurement or a Borrower attractive
to a potential supplier. Rather, the whole package of value, coupled with Borrower behavior
informs how the supplier is likely to react. The ideal classification is that potential suppliers
will see Borrowers as good customers that they already treat as “core” or that that they would
like to grow the relative value of the account through “development”. Unfortunately, some
suppliers may see the Borrower as a “nuisance” to be avoided due to high costs of doing
business, or as someone that can be “exploited” over the short term. Truthfully understanding
this dynamic, and how it can be changed to get the right, motivated supplier is critical in
ensuring a successful procurement result.
The outcome of this analysis should allow a Borrower to establish the factors listed below and
design a procurement approach to maximize market interest, and actual participation in the
procurement:
a) What changes the Borrower needs to make to be more attractive to the market?
b) How to motivate the market to bid and provide a good solution to meet the Borrower’s
requirements?
c) How to engage with the market to optimise the level of supplier participation in a
bidding process?

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Section V. Procurement Risk Analysis

Section V.
V. Procurement Risk Analysis

Procurement risk analysis is the process of identifying and minimizing the likelihood of a risk
occurring and minimizing the impact to the Borrower’s PDOs, business, and stakeholders if the
risk does occur. It also looks at identifying and maximizing the likelihood of an opportunity
occurring and maximizing the impact/benefit to the Borrower’s PDOs, business, and
stakeholders if the opportunity materializes. The Procurement risk analysis sets out the plan
for tackling risks and opportunities.
This is where all the risks identified from Section IV of the PPSD Guidance are summarized and
evaluated in a Procurement Risk Management Plan as seen in Figure 8 below. This plan defines
the risks, assesses their impact, describes the mitigation action and allocates the risk to an
owner.
Risk management is important because it supports the recognition, evaluation and
prioritization of potential failures and their effects. It enables Project delivery by identifying
and tracking actions, which eliminate or mitigate the chance of the potential failure occurring.
Its intent is to maximize positive impact and minimize adverse impact to the procurement
approach and Procurement Objectives.
The table in Figure 8 should be used to create the Risk Management Plan by summarizing and
recording the overall risk management analysis.
Figure 8 – Risk Management Plan

Procurement risk management is primarily concerned with managing impacts on the contract
schedule, cost, and performance (including the delivery of the stated requirements). Through
a structured approach to risk management, Borrowers should identify how opportunities and
risks will be managed at different stages of the procurement process. The procurement
process stages below should be used as a starting point to filling out Figure 8.
• Market engagement – to make sure the Borrower has an understanding of how the
market functions and to demonstrate to suppliers the benefits of working with the
Borrower;

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• Prequalification – make sure that only suppliers capable of delivering the requirements
are invited to bid;
• Specification – make sure the Borrower clearly states the detailed specification or
performance requirements and provides the supplier with freedom to use its expertise
to be innovative in its delivery;
• Procurement arrangements (contract type, conditions of contract, pricing
mechanisms, etc.) - make sure bids are competitive and ultimately deliver
demonstrable VfM;
• Evaluation – make sure the most appropriate supplier is selected and all risks are
managed and understood; and
• Contract Management – make sure suppliers fulfil their contractual obligations and
that any issues are dealt with efficiently and effectively in a fair and transparent
manner.

5.1 Approach to Procurement Risk Analysis

Analysis
There are numerous approaches to performing a risk analysis. The PPSD uses a technique that
looks at identifying the risk (the problem), the likelihood of the risk (event) occurring, the
criticality of the risk if it occurs, and the impact of the problem (risk). The combination of
these factors allows a determination of the risk rating.
To make the identification and analysis of procurement risk manageable, the Borrower should
structure the assessment around eight (8) key areas, which are:

• Market complexity and competitiveness;

• Delivery and supply security;
• Suppliers and supplier relationships;
• Borrower experience, capacity and capability;
• Cost trends;
• Technical innovation – the degree and rate of change;
• Sustainability (environmental, economic, social); and
• Business and operating environment.

Quantifying risk and allocating a rating is subjective, but the use of the criteria described
below, in conjunction with information from the Strategic Analysis in Section IV of the PPSD
Guidance, should help the Borrower make the analysis more objective.
• Previous experience and judgement of the Borrower;
• Understanding key decision drivers of both suppliers and the Borrower;
• Identification of key delivery dependencies;

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• Analysis of any assumptions made; and

• Root cause analysis.

Once the risks have been identified, they need to be assessed, rated and ranked by priority.
Each risk (considering likelihood and impact) can then be rated in terms of criticality using the
ratings below. This will provide a classification of the criticality of the risk in terms of overall
risk to the Procurement Objectives.

1 = Very Low (VL)

2 = Low (L)
3 = Medium (M)
4 = High (H)
5 = Very High (VH)

The Borrower should plot each risk on a risk criticality matrix based upon its rating (Figure 9).
The matrix provides the Borrower with an indication of what the priority is for each risk, by
segmenting the risk classification into 4 main groupings.
It may not be possible to address all risks through the procurement approach and the risk
management plan, for reasons such as resource shortages or lack of practical mitigations
measures. The risk matrix will indicate if the residual risk is too high, which would be indicated
by a number of “red” and “yellow” still being unresolved.
Figure 9 – Assessing Risk Criticality

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Once this analysis is complete, the Borrower should consider how to deal with the risks,
developing appropriate mitigation plans, allocating risks to specific owners to address (noting
that inappropriately transferring risks to the supplier, may reduce competition, or result in no
bids or a sub-optimal bid following the procurement process). Risk mitigations actions fall
into four main types:

• Avoid: Choosing not to accept the risk e.g. an activity is avoided as the risk is
considered too great;
• Minimise: Reduce or control through improved monitoring, changing the process,
defining a new procedure, etc.;
• Spread or Transfer: Transferring or sharing the risk by diversifying, sub-contracting,
outsourcing, joint venture, hedging or insurance; and
• Accept: By deciding that the risk is within agreed risk tolerances.

The Borrower needs to consider each risk using these four types of action to develop individual
management mitigation actions. Figure 10 outlines typical actions and responses to risk
depending upon the risk classification.
Figure 10 – Risk Actions and Responses

The final step of risk management is for the Borrower to allocate a risk owner who will be
responsible for ensuring implementation of mitigation measure and monitoring the risk

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throughout the procurement process to ensure the mitigation remains effective in managing
the allocated risk.
This same process should be repeated to identify and address opportunities that may affect
the Project. The focus should be how to maximize the likelihood of an opportunity occurring
and maximize the impact/benefit to the Borrower’s PDOs, business, and stakeholders if the
opportunity materializes. This could help to pull schedules forward, reduce cost, or provide
additional benefit to the Project that otherwise wouldn’t have occurred if the opportunity
hadn’t been managed.

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Section VI. Stakeholder Analysis

Section VI.
VI. Stakeholder Analysis

This Section of the PPSD template (Annex I) is where the key stakeholders are identified with
an interest in or impact on the Project so that their respective view can be appropriately taken
into account in the design of the procurement approach. The output of this Section will be a
Stakeholder Management Plan (Figure 11) that outlines how each stakeholder will be engaged
throughout the procurement process to ensure their expectations and objectives are
appropriately met and managed.
Figure 11 – Stakeholder Management Plan

A stakeholder analysis should be performed early in development of the PPSD. Identifying and
managing stakeholder relationships is a critical part of managing a Project. Stakeholders are
a good source of information, can influence the ease with which a Project is delivered, and
some stakeholders will be the recipient of the requirements delivered and involving these
individuals in the design of the procurement approach and management of the contract(s) will
increase ownership.
Stakeholder analysis is focused on each individual stakeholder’s needs (from a Project
perspective), as well as what their on-going involvement should be post contract award.
Stakeholder analysis can be undertaken in three stages:

• Identify the stakeholders through stakeholder mapping;

• Establish their interest or requirements from the Project defined as Stakeholder
Objectives;
• Specifying their ongoing involvement through stakeholder categorisation by
completing a Responsible Accountable, Consulted, Informed analysis (RACI).

6.1 Stakeholder Identification

A stakeholder is someone who is affected by or can affect the outcome of an activity within
the Project. This includes:

• People who can influence the Project;

• People who want a say in which procurement approach is selected;
• People who can make a Project fail or succeed through participation or opposition;

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• Those who can contribute financial and technical resources; and

• Those whose attitude has to change for the Project to succeed.

Typically stakeholders are:

• Governments – Federal and State;
• Beneficiaries;
• Individuals who are impacted by the Project;
• Non-Governmental Organizations (NGOs), Civil Society, and special interest groups;
• Other Borrowers in cross jurisdictional procurements; and / or
• Bank functions and Task Team members.

Stakeholder mapping is undertaken by brainstorming who has an interest in the Project from
conception all the way through to Project delivery.

6.2 Identification of Stakeholder Objectives

Having identified stakeholders, the next step is to define their objectives. In order to keep
stakeholder’s objectives focused on the procurement approach, stakeholder engagement
needs to be framed around the following:
• Identifying the issues and challenges that the Borrower has with the procurement or
with the supply market;
• Identifying the needs and requirements by establishing what the drivers are by
considering:
o What do the beneficiaries/users need from this Project?
o What does the Borrower require of this supply market and suppliers?
• Identifying what the Bank expects from the Project.

This approach is aimed at capturing both current and future objectives and considering them
as “must haves” and “wants”, which are requirements that a stakeholder would not accept a
procurement approach without the possibility of them being delivered. These needs,
therefore, must be specific and easy to understand so that they can be defined and
summarized into a Stakeholder’s Objective for the Procurement.
Borrowers should confirm this information by talking directly with stakeholders wherever
possible. However, this is not always possible, so for those stakeholders who can’t be
contacted directly, the best approach is for the Project team to “theorize” what that
stakeholder’s views may be.

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6.3 Stakeholder
Stak eholder Interest - RACI Analysis
RACI is a management tool that is used to categorize a stakeholder’s interest and influence
over the Stakeholder’s Objectives. For each objective, a stakeholder’s interest can be
categorized as:
R = responsible, is a person who performs an activity or a task successfully.
A = accountable, is a person who is ultimately accountable for the quality and overall success
of delivery of the Project.
C = consulted, is a person who provides feedback and contributes to an activity or task, where
the input adds value and is essential for successful implementation.
I = informed, is a person who needs to be notified of decisions, results, or action taken but
doesn’t need to be involved in the decision-making or delivery.
Asking the following questions should help Borrower’s define stakeholder interest and
influence and allow a stakeholder to be categorized under a RACI.
• What are their needs, influencing factors and likes?
• Why might they object or oppose something?
• How will they be affected personally by the outcome of the Project?
• What is their responsibility?
• What is their power and level of influence?
o What is their interest?
o How do they expect to be involved and why?
• How predictable are they?

The list of stakeholders and their objectives may be long and in some cases may conflict with
each other. Further stakeholder engagement may be required to clarify conflicting objectives
as well as prioritizing the key objectives that the procurement approach must deliver.

6.4 Stakeholder
Stakeholder Management Approach
Stakeholder engagement is an ongoing activity that needs to be continued throughout the life
of a Project. Therefore, a high-level stakeholder management approach needs to be created.
Borrowers can use the information gathered for the Stakeholder Management Plan to
determine the best approach, type, and nature of an ongoing engagement. Figure 12 is a simple
matrix that maps each stakeholder by their power and influence against their interest and
objectives and provides an indication of the possible management approach for different types
of stakeholder.

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Figure 12 – Stakeholder Management Approaches

Once the Borrower has collected all this information, it should be summarized into the table in
Figure 11.

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Section VII. Procurement Objectives

Section VII.
VII. Procurement Objectives
Section VII. Procurement Objectives

This Section of the PPSD Template (Annex I) looks at how to develop Procurement Objectives
that align with the PDOs. The Procurement Objectives will be used to test alternative
procurement approaches to ensure they deliver the Project requirements.
Defining the right Procurement Objectives is critical. The Borrower should use these
objectives as the basis for:

• Refining the specification of requirements and supplier incentives;

• Establishing the allocation of risk between the Borrower and the supplier;
• Developing the evaluation criteria used to select the supplier who will deliver the contract;
and
• Documenting the Key Performance Indicators (KPIs) that will be used to monitor contract
delivery to ensure that the contract continues to meet the Project requirements.

Figure 13 illustrates the relationship between each of these factors.

Figure 13 - Strategic Alignment of Objectives

7.1 Drafting Procurement Objectives

The Borrower should develop Key Procurement Objectives using information already gathered
in Sections III and VI of the PPSD Guidance respectively, on the PDOs and Stakeholder Analysis
(Figure 14). The Key Procurement Objectives should be detailed enough that if achieved will
support the delivery of the Project’s Development Objectives and achieve VfM.

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Figure 14 – Procurement Objectives Information Sources

7.2 RAQSCI Model

The RAQSCI model is a tool that the Borrower should use to structure and organize the
Procurement Objectives. It is also an effective way to ensure that the Procurement Objectives
are comprehensive. Failure to identify all the Procurement Objectives at this stage could result
in the design of an ineffective procurement approach being designed and selected. Figure 15
below describes the various components of a RAQSCI Model.
Figure 15 – RAQSCI Model

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The Procurement Objectives need to be SMART – Specific, Measurable, Achievable, Relevant

and Time-bound. It is also important that Procurement Objectives are prioritized. As part of
due diligence, the Borrower should have the Procurement Objectives quality assured by the
key stakeholder, (at a minimum those in the Borrower and the Bank) and identified in both the
RACI and stakeholder management plan.

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Section VIII. Design of Procurement Approach
and Recommendation
Section VIII.
VIII. Design of Procurement Approach and Recommendation

This Section of the PPSD Template (Annex I) summarizes the options for the procurement
approach for each of the contracts in the Project. The supporting evidence or justification for
each procurement approach should be drawn from the previous sections of the PPSD, with
enough detail to logically explain the recommended procurement approach.
Each option should be assessed against the Procurement Objectives to determine the
“recommended” procurement approach.
The output of this Section will be a:
• Procurement approach stating how the Borrower is going to approach the market,
select the supplier, and finalize the contract;
• Set of selection methods and market approaches built up from the individual
procurement methods that combine to produce a bidding document; and
• Procurement Plan that summarises how each contract within the Project will be
procured.

All the analysis and research undertaken, as part of the long form PPSD needs to be brought
together to design the different procurement approaches that are available to deliver the
Procurement Objectives. It is likely there will be a number of different procurement
approaches available. This Section is concerned with generating alternative procurement
approaches that could deliver the Procurement Objectives and then determine which one is
most likely to succeed.
The selection of the recommended procurement approach should only take place once all
realistic options have been identified, described and appraised. At a minimum the options
analysis should describe each procurement approach option in sufficient detail to enable
evaluation of the options in terms of their ability to satisfy the Procurement Objectives.
The template in Figure 16 details all the various procurement approaches and methods that
need to be considered in developing the right procurement approach options.
A template should be completed for each option generated, with the justification column
completed once the option analysis has been completed, and then only justify the final
recommended procurement approach.

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Figure 16 – Procurement Approach

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8.1 General Considerations in Designing a Procurement Approach

A. Supply Positioning and Supplier Preferencing

Aligning the needs of the Borrower and the likely behaviors of suppliers who may bid for World
Bank financed Projects is one of the more fundamental parts of the procurement approach
design.
As described earlier in Section IV of the PPSD Guidance, Supply Positioning is a procurement
tool that is used to assess the criticality of the goods, services, and works to the Borrower by
evaluating contract risk and value. The table below demonstrates that it can also provide an
overview of the procurement approaches and mitigation measures, segmented by the Supply
Positioning categorization that a Borrower should consider in developing its procurement
approach.

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Equally Supplier Preferencing can identify the typical approaches Borrowers can expect from
suppliers based on their segmentation of Borrowers. The table overleaf provides an overview
of a supplier’s likely approach to a Borrower (as a customer) in each category.

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Supply Positioning and Supplier Preferencing are most insightful when used together.
Comparing the findings of both Supplier Preferencing and Supply Positioning allows the
Borrower to identify and assess whether the typical procurement approach of a Borrower
based on the Supply Positioning segmentation is aligned with the typical approach of individual
suppliers as determined by Supplier Preferencing.

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Where alignment between the Borrower and the Supplier on the procurement approach is high,
this is a good indication that the indicative procurement approach is likely to deliver the
expected benefits. However, where there is little alignment, this is equally a good indication
that the indicative procurement approach may not be effective in delivering the expected
benefits.
The comparison of these two models is particularly helpful at identifying:
a) Potential risks that need to be considered in developing a “fit for purpose” procurement
approach;
b) Where Borrowers may need to change supplier perceptions of them by making changes
for example, asking the Bank to make direct payments to suppliers if the supplier is
concerned about the Borrower’s track record in payment timeliness;
c) Elements that need to be addressed in the Market Engagement approach to positively
position the market as to why a supplier would want to do business with the Borrower;
d) Actions that need to be included within the risk register, and contingency planning to
address highlighted risks;
e) Potential areas that could be covered under pre-qualification to ensure that suppliers
with the best match to the Borrower are qualified to bid; and

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f) Potential evaluation criteria to ensure that questions are included in the request for
bids or proposals that ensure suppliers provide information that allows the most
aligned suppliers to be identified.

Misalignment of Borrower and supplier approaches can be managed, as long as the reasons for
the misalignment are known and understood. Some of this information will come from the
results of the Supply Positioning and Supplier Preferencing comparison, but also from the
SWOT and PESTLE evaluations. Again, just because a procurement is high value, does not
make the procurement or indeed the Borrower necessarily attractive to the market.

B. Types of Competition
Knowledge of the type of competition that exists is a prerequisite to being able to develop the
right procurement approach. For example, in a monopolistic/oligopoly market (where one, or
few supplier(s) hold all the power) designing a procurement approach that is characterized by
competitive bidding, with significant risk transfer to the supplier and with supplier selection
being based on lowest evaluated cost, is not likely to be successful. In these circumstances, a
negotiated approach based on open book pricing potentially linked to a longer-term contract
is more likely to be more effective. Therefore, the type of market will have a direct influence
on the procurement and will help the Borrower determine the:

a) Type of competitive bidding (as determined by the level of completion and the
availability of substitutes/alternatives);
b) Most effective pricing, or costing mechanism (as determined by the market pricing
approach); and
c) Level of risk transfer the market will realistically bear (as determined by the relative
strength and power of the buyer and the supplier’s motivation to participate).

The diagram below lists five different types of competition that broadly exist in markets and
describes the individual characteristics of each type.

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The management technique, “Porter’s Five Forces” Analysis (as described in Annex II) may be
used for a more detailed assessment of competition and the factors that determine the type
and level of competition, if further evaluation of the market place is required to support the
design of the procurement approach

8.2 Design of the Procurement Approach

Application of the right procurement approach should be considered in each of the following
five (5) stages (illustrated in Figure 17):
1. Requirements (specification type and sustainable procurement requirements);
2. Contract Strategy (contract type, pricing/costing mechanism, supplier relationship,
and conditions of contract);
3. Selection Methods (selection methods, selection arrangements, and market approach
options);
4. Evaluation Methods (rated criteria or lowest evaluated cost); and
5. Contract Management Approach.

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Figure 17 – Developing a Procurement Approach

8.3 Requirements
While the PPSD is not directly concerned with the drafting of Project/contract requirements,
the selection of the appropriate type of specification has a critical impact on the procurement
approach, and subsequent level of market interest. For example, it impacts:

• Lead-time before going to market;

• Selection of procurement methods (bidding approach and Standard Procurement
Document (SPD));
• Transfer of risk between the Borrower and the supplier;
• Level of supplier innovation;
• Bid or proposal evaluation method and complexity;
• Likelihood of delivering the PDOs;
• Level of supplier flexibility in design and delivery; and
• The level of Borrower control over design and delivery.

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8.3.1
8.3.1 Specifications
Figure 18 illustrates that there are two main approaches to specifying the requirements and
how these can influence the factors described above. The two main types of specification are:

• Conformance specifications sometimes known as technical, detailed, input or design

specifications; or
• Performance specifications, sometimes known as outcome based specifications.

Figure
Figure 18 – Specification Types

A. Conformance Specification
Conformance specifications are used where a thorough understanding of the requirements
already exists, and there is little/no desire for the supplier to innovate. In these circumstances
the Borrower normally has a comprehensive understanding of the requirement and is able to
describe it in detail. This includes its technical, design, and functional requirements as well as
being able to describe exactly how the supplier must perform and deliver the requirements.

Conformance specifications work best for simple purchases of goods, services, and works,
where there is a focus on defining specific quantities and specifications for the requirements,
unit price costing, and specifics around the time, place, and manner for delivery and
acceptance.

The main risk of a conformance specification is if the specification is incorrect, such as the
design doesn’t function, then all the risk lies with the Borrower because they have specified
exactly what they want.

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B. Performance Specification
Performance specifications are used where the understanding of what is required in terms of
outcomes can be described, the Borrower is uncertain of the best process or method to deliver
the requirements, or suppliers are known to have the capability to design fit for purpose
solutions.

Performance based specifications focus on outcomes or results rather than detailing the
process of production, construction, and delivery. They are particularly effective at allowing
suppliers to bring their own expertise, creativity, innovation and resources to the bidding
process without restricting them to predetermined methods or detailed processes. This
allows suppliers to reduce cost, and passes the risk of both cost and performance (supplying
something that works) to the supplier.

As a general rule, performance based specifications focus on achieving results, whereas

conformance specifications focus on meeting specified design and resource requirements.

Performance based specifications should be drafted such that suppliers are allowed maximum
flexibility when meeting the requirements, whereas conformance specifications exclude
flexibility, unless alternative bids are permitted.

Additional context on specification types and writing specifications can be found in Annex III.

8.3.2 Additional Sustainable Procurement Requirements (non-

(non-
mandatory)
Sustainable procurement derives from the concept of sustainable development, which has
been defined as “Development that meets the needs of the present without compromising the
ability of future generations to meet their own needs.” Sustainable development defines three
pillars for consideration: environmental, social, and economic.

The inclusion of additional sustainable procurement requirements in a procurement approach

beyond those required by the bank is discretionary so the Borrower can determine the extent
to which they implement further sustainable procurement practice-provided these practices
are applied in ways that are consistent with the Bank’s Core Procurement Principles. A
proportionate approach should be followed when setting requirements for the additional
sustainable procurement management measures.

Generic sustainable procurement requirements can be applied in any contract. However,

consideration of additional specific sustainable procurement requirements is most effective
when the unique risks (identified in the procurement risk analysis) associated with each
Project are individually addressed.

The intention to adopt additional sustainable procurement requirements in the procurement

process should be identified at the planning stage of the PPSD.

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Early consideration of additional sustainable procurement requirements ensures they are

included in the overall procurement approach. The procurement approach can be designed to
consider additional sustainable procurement requirements at a number stages. These are:

• Qualification of suppliers;
• Performance and/or detailed technical specifications;
• Evaluation criteria;
• Contract terms and conditions; and / or
• KPIs that are used to assess ongoing performance;

To obtain further information on writing sustainable procurement requirements into

specifications see Annex III, or consult guidance on available tools and techniques to support
sustainable procurement requirements analysis at [Link]/procurement.

8.4 Contract Strategy

A Contract Strategy determines the contract type, the price and cost model, and the desired
on-going supplier relationship to achieve the right result over the term of the contract.

8.4.1 Contract Type

The contract type is the selection of the appropriate contract form, and terms and conditions.
The type of specification, the procurement risk assessment, and the market analysis should
inform the selection of contract type. It should also consider the market’s capability, the
Borrower’s capacity, and the operational environment in which delivery will be taking place.

The selection of contract type is Project specific so consideration also needs to be given to the
PDOs and Procurement Objectives. Contract type for goods and services is normally on the
basis of supply or supply and ongoing support, while infrastructure Projects have a larger range
of options including:

A. Traditional – Design and Build separated;

B. Design and Build;
C. Design, Build, Operate, Maintain;
D. Design and Build – Turnkey or Prime Contractor;
E. EPC and EPCM;
F. Design, Build and Operate;
G. Build, Own and Operate; or
H. Build, Operate and Transfer.

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8.4.2 Price and Costing Mechanism

The choice of the price and costing mechanism should be made at the time the contract type
and SPD/bidding document are selected. Each price and cost mechanism will determine the
risk allocation between the Borrower and supplier. Therefore, the cost and price selection
should be informed by the contract strategy, type of specification, the procurement risk
assessment, and strategic analysis from Section IV of the PPSD Guidance.

There are five main pricing and costing models and their use is determined by the SPD /bidding
document selected:
A. Lump Sum;
B. Performance Based Contracts;
C. Schedule of Rates/Admeasurement – Contract based on unit prices;
D. Time and Materials – Time based contracts; or
E. Cost Plus – Reimbursable cost contracts.

The following is a more detailed description of each of the five costing models.

A. Lump Sum Contracts

A lump sum contract is one where the supplier agrees to perform the scope of services for a
fixed contract amount. Payment percentages or amounts may be linked to the completion of
contractual milestones or determined as a percentage of the value of the work to be
performed.

Lump sum contracts may be appropriate when the:

• Scope of the contract can be clearly and accurately specified and can be linked to
apparent milestones and payments at the time of selection (e.g., simple civil works or
consulting services with clearly identifiable deliverables);
• Supplier is responsible for delivering the completed works, (e.g. industrial plant or pre-
built information technology solutions, such as in turnkey contracts), and paid on a
lump sum basis per contractual milestones.

B. Performance Based Contracts

Performance Based Contracts are contractual relationships where payments are made for
measured outputs (performance targets) instead of inputs. The outputs aim at satisfying
functional needs in terms of quality, quantity, and reliability.

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Performance based contracts may be appropriate for:

• Rehabilitation of roads and operation and maintenance of the roads by a contractor for
specified periods;
• The provision of non-consulting services to be paid on the basis of outputs; and
• Operation of a facility to be paid based on functional performance.

C. Schedule of Rates /Admeasurement

/Admeasurement
A contract that is based on estimated quantities of items and contractual unit prices for each
of these items. Payment is made based on the actual quantities and contractual unit prices.

This type of contract is appropriate for works, when the nature of the work is well defined, but
the quantities cannot be determined with reasonable accuracy in advance of construction,
such as in roads or dams.

For goods and non-consulting services, it is appropriate when the required quantities are
known and unit prices are sought from bidders.

D. Time and Materials

Time based contracts are contracts where the payment is made based on agreed rates and
time spent plus reasonable incurred reimbursable expenses.

These types of contractual arrangements may be used for:

• Emergency situations, repairs, and maintenance works; or

• Consulting services, when it is difficult to define or fix the scope and duration of the
services (e.g., complex studies, supervision of construction, and advisory services).

This type of contract is not appropriate for goods and industrial plants.

E. Cost Plus
Cost Plus contracts are contracts that require reimbursable based payments for all actual
costs plus an agreed fee to cover overhead and profit.

These types of contracts may be appropriate for exceptional fit-for-purpose circumstances

such as emergency repairs and maintenance work. To minimize risk to the Borrower, suppliers
under these contracts must make all their records and accounts available for inspection by the
Borrower or by some agreed neutral third party. The contract should also include appropriate
incentives to limit costs.

Figure 19 summarizes the various benefits and risks of each different contract type and under
which circumstances they are best used.

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Figure 19 – Pricing and Costing Approaches

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8.4.3 Selection of the Cost and Price Mechanism

When selecting the appropriate price and cost mechanism, the Borrower should consider:

A. Specification type – conformance or performance based and how well the

requirements can be scoped at the contract outset and how quickly the work needs to
start;
B. Contract type – certain types of contracts look to pass risk to the supplier (such as
design, build, operate, and maintain) therefore, the price mechanism needs to be one
that is consistent with that approach;
C. Required allocation of risk – risk is allocated to the party best able to manage the risk;
D. Operational environment – includes events that are difficult to predict and known
issues such as high inflation, delivery and insurance (covered by the use of
INCOTERMS);
E. Capacity of the Borrower – familiarity with the pricing mechanism and availability of
resources to manage the contract; and
F. Type of market – what will motivate suppliers to bid and deliver.

Figure 20 maps a number of factors expressed in terms of flexibility and control, time to
develop scope, risk, and supplier motivation, which should be used to support this assessment.
Figure 20 – Contract Type and Payment Mechanism Analysis

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8.4.4 Supplier Relationship

The selection of the contract type and price and cost mechanism can determine the likely
relationship with the supplier during the contract and Project delivery. The relationship
spectrum can range from adversarial to collaborative. Figure 21 illustrates the full spectrum
of typical Borrower/supplier relationships that can exist and how the relationship can
influence behaviors around trust, communications, and decision-making.

For example, an adversarial relationship can be seen as ‘win-lose’ where both the Borrower and
supplier work independently of each other and often to each other’s detriment, as this is where
one party normally gains at the expense of the other. A collaborative relationship can be seen
as ‘win-win’, where both the Borrower and supplier work together for mutual contractual and
Project delivery benefit.

Both types of relationships have merit depending on the individual Project/contract

circumstances. However, it is essential that the Borrower understands the implications of the
decisions on contract type (which often determines risk transfer) and the implications pricing
and costing mechanisms can have on supplier relationships.
Figure 21 – Supplier / Borrower
Borrower Relationship Spectrum

A. Adversarial Approach
An adversarial approach to the relationship may be appropriate where some or all of the
following are present:

• Strong competition in the market;

• Many suppliers and a large supply market;
• Suppliers have little power;

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• Off the shelf for standard goods, services, and works;

• No need or benefit for high degree of trust between the Borrower and suppler;
• The cost of switching to a new supplier is low to nil;
• One off purchases; and / or
• Short-term relationship, with no long-term commitment.

B. Collaborative Approach
A collaborative approach to the relationship may be appropriate where some or all of the
following are present:

• Long-term commitment where there is mutual trust, openness, and transparency;

• Agreed shared interests and objectives;
• Shared risk and reward;
• A win-win approach is possible;
• Relationship is one of equal partners; and / or
• Agreement that there should be joint effort to eliminate waste and increase
efficiencies and cost savings, where both the Borrower and supplier can benefit from
seeking ways to reduce cost and add value.

8.4.5 Price Adjustments

World Bank Standard Procurement Documents offer the option for either fixed prices or
adjustable price contracts where adjustments are made to reflect any changes in major cost
activities of the contract, such as labor and materials. For procurements, where the Bank has
agreed that the Borrower’s national procurement arrangements may be applied, the Borrower
should consider how price adjustments mechanisms will be addressed in the most appropriate
manner.

Price adjustment provisions are usually not necessary in simple contracts involving delivery of
goods or completion of works, non-consulting services and consulting services within 18
months, but must be included in contracts, which extend beyond 18 months.

Contracts of shorter duration (less than 18 months) can also include similar provisions for price
adjustments when future local or foreign inflation is expected to be high.

The market research analysis report should provide all the information needed to establish
cost trends and drivers in the market as well as an assessment on the business environment
of the Borrower. The Borrower should use this information to justify the selection of price
adjustments.

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8.4.6 Form of Contract (Terms and Conditions)

The final part of the PPSD Strategy is selecting the terms and conditions of contract. In many
instances, the decisions made on the approved selection methods and SPD (or as agreed with
the Bank, the Borrower’s own national procurement arrangements) will determine the
conditions of contract. However, as a check and balance, the Borrower should establish a
determination that is consistent with the overall procurement approach.

The value and complexity of the contract, procurement risk, uncertainties in contract
performance, allocation of risks between the Borrower and supplier, and the desired
relationship type drive decisions on the most appropriate form of contract.

The form of contract used should have the following attributes:

• Be comprehensive enough to meet all the objectives of the procurement;

• Reflect the full specification of the goods, consulting services, non-consulting services
and works;
• Be consistent with the conditions specified for the procurement process;
• Manage risk appropriately;
• Define and protect the rights and obligations of the Bank, Borrower, and supplier;
• Be fair to both the Borrower and supplier, particularly where clauses cover risk
transfer, limitations or exclusions of liability, indemnities, warranties, and intellectual
property; and
• Comply with relevant local laws.

Figure 22 details a comparison of using the Bank’s Standard Contract Terms and Conditions
and the risks of using Bespoke Terms and Conditions. This should be used to validate the
choice of Terms and Conditions being proposed in the procurement approach.

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Figure 22 - Comparison of Contract Terms and Conditions

The Borrower may include economic, social, and environmental considerations in contract
performance clauses, provided they have been agreed with the Bank and were included in the
Standard Procurement Documents.

8.5 Selection Methods

Having determined the contract type and pricing mechanism, the next stage of the
procurement approach is to choose the selection method and market approach. There are
three decisions to be made:

• Selection Method;
• Selection Arrangement;
• Market Approach.

There are numerous combinations of these three options, however, some are mutually
exclusive. Figures 23(a) and 23(b) document the options available.

Please note, when applied, further details on the content of each of the documents are
contained in the SPDs and the associated guidance note.

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Figure 23 (a) Approved selection methods: Goods, Works and Non-

Non-consulting Services

Goods, Works, and

Non-
Non-consulting Market approach options

Services
Approved selection methods and Inter-
Inter - Single-
Single- Multi-
Multi- Rated
arrangements
Open Limited Direct National PQ IS BAFO Negotiation
national stage stage criteria

Selection methods
Request for Proposals x x normally * normally
x not
x optional x *
Request for Bids normally
x x x x X x x
Request for Quotations
x X x x x x x X x
Direct Selection

Selection arrangements
x x required x X x
Competitive Dialogue
x
Public-Private Partnerships
Commercial Practices As per acceptable commercial procurement practices

UN Agencies As per Paragraphs 6.47 and 6.48

x x x X x x
E-Auctions
x x x x x x x
Imports
x x x X x x
Commodities
x x x x X x x
Community-driven Development
x X x x x x x X x x
Force Accounts
This market approach option is available
X This market approach option is not available
PQ = Prequalification
IS = Initial Selection
* This refers to negotiations after a competitive process as per Paragraphs 6.34 to 6.36 for the Procurement Regulations for IPF
IPF Borrowers

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Figure 23(b) – Selection Methods for Consulting Services

Consultin
Consulting
ting Services Market approach options
Approved selection methods and Inter-
Inter-
Open Limited Direct National Shortlist
arrangements national

Selection methods
Quality Cost Based Selection x x

Fixed Budget Based Selection x x

Least Cost Based Selection x x

Quality Based Selection x x

Consultant’s Qualification Based Selection x x

Direct Selection x x x x x

Selection Arrangements
Commercial Practices As per acceptable commercial Procurement practices

UN Agencies As per Paragraphs 7.27 and 7.28

Non Profit Organizations (such as NGOs)

Banks

Procurement Agents

Selection Methods for Individual Consultants

Selection of Individual Consultants x x x
This market approach option is available
X This market approach option is not available

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8.5.1 Selection Methods

There are four ways of inviting suppliers to submit bids or proposals for World Bank financed
Projects.

A. Request for Proposals (RFP);

B. Requests for Bids (RFB);
C. Requests for Quotations (RFQ);
D. Direct Selection.

The process flow charts outlined below illustrate the different RFP and RFB options. Further
information on these process flow charts can be found in the Procurement Regulations.

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Process flow chart: RFP Model 1

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BAFO: Key process variations to RFP Model 1 for BAFO

Note:
Note key variations in process
are in yellow font

Negotiations: Key process variation to RFP Model 1 for negotiations

Note:
Note key variations in process
are in yellow font

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Process flow chart: RFP Model 2 (without BAFO or negotiations)

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Process flow chart: RFB One-

One-envelope process (without Prequalification)

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Process flow chart: RFB Two-

Two-envelope process (without Prequalification)

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A. Request for Proposals (RFP)

A RFP is a competitive method for the solicitation of Proposals. It should be used when,
because of the nature and complexity of the Goods, Works, or Services to be procured, the
Borrower’s business needs are better met by allowing Proposers to offer customized solutions
or Proposals that may vary in the manner in which they meet or exceed the requirement of the
request for proposals document.

An RFP is normally conducted in a multi-stage process. To allow an evaluation of the degree

to which Proposals meet the requirements of the request for proposals document the
evaluation normally includes rated type criteria and the evaluation methodology.

B. Requests for Bids (RFB)

A RFB is a competitive method for the solicitation of Bids. It should be used when, because of
the nature of the Goods, Works, or Services to be provided, the Borrower is able to specify
detailed requirements to which Bidders respond in offering Bids.

Procurement under this method is conducted in a single-stage process. Qualifying criteria

(minimum requirements normally evaluated on a pass/fail basis) are normally used with RFB.
Rated-type evaluation criteria are normally not used with RFB.

C. Requests for Quotations (RFQ)

A RFQ is a competitive method based on comparing price quotations obtained from suppliers.
This method may be appropriate for procuring limited quantities of readily available off-the-
shelf goods or non-consulting services, standard specification commodities, or simple civil
works of small value, when it is more efficient than more competitive methods.

D. Direct Selection
Proportional, fit-for-purpose, and VfM considerations may require a direct selection approach:
that is, approaching and negotiating with only one firm. This selection method may be
appropriate when there is only one suitable firm or there is justification to use a preferred firm.

8.5.2 Selection Arrangements

The selection arrangements are:

A. Competitive Dialogue;
B. Public Private Partnerships;
C. Commercial Practices;
D. United Nation (UN) Agencies;

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E. e-Reverse Auctions;
F. Imports;
G. Commodities;
H. Community Driven Development;
I. Force Accounts;
J. Framework Agreements; and
K. Cross Project Opportunities.

A. Competitive Dialogue
Competitive Dialogue is an interactive multistage selection arrangement that allows for
dynamic engagement with Proposers. It may be used only for complex or innovative
procurement.

B. Public Private Partnerships (PPP)

A PPP is a long-term contract between a private party and a government entity, to provide a
public asset or service, in which the private party bears significant risk and management
responsibility, and remuneration is linked to performance.

C. Commercial Practices
Practices
Commercial Practices refers to the use of the well-established procurement arrangements
used by the private sector (normally entities not subject to the Borrower’s public procurement
law), for the procurement of Goods, Works, or Non-consulting Services. Commercial practices
may also be used for a program of imports undertaken by private sector entities. The Bank’s
Core Procurement Principles are the standard for determining the acceptability of Commercial
Practices.

D. United Nation (UN

(UN) Agencies
UN Agencies can be directly selected in situations where their expertise or rapid mobilization
on the ground is critical, in particular, in circumstances of urgent need of assistance or
capacity constraints.

E. e- Reverse Auctions
An electronic reverse auction (e-auction) is a scheduled online event in which pre-
qualified/registered suppliers bid against each other on their price.

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F. Imports
When the IPF provides financing for a program of imports (i.e. a program for importing eligible
essential Goods by private or public sector entities, based on a list agreed between the
Borrower and the Bank).

G. Commodities
Procurement of commodities refers to procuring items such as grain, animal feed, cooking oil,
fertilizer, and metals. The procurement of commodities often involves multiple awards for
partial quantities to assure security of supply and multiple purchases over a period of time to
take advantage of favorable market conditions and to keep inventories low.

H. Community Driven Development

Procurement arrangements, specifications, and contract packaging may be suitably adapted,
in a way that is acceptable to the Bank, when, in the interest of project sustainability, or to
achieve certain specific social objectives of the project, it is desirable (in selected project
components), to:

a) call for the participation of local communities and/or nongovernmental organizations

(NGOs) in civil Works and the delivery of Non-consulting Services; or
b) increase the use of local know-how, Goods, or materials; or
c) employ labor-intensive and other appropriate technologies.

I. Force Accounts
Force Account, which refers to Works such as construction and installation of equipment and
Non-consulting Services carried out by a government department of the Borrower’s country
using its own personnel and equipment, may be the only practical method of procurement
under specific circumstances. A government-owned construction unit that is not
managerially, legally, or financially autonomous is considered a Force Account unit. The use of
Force Account requires that the Borrower apply the same rigorous quality checks and
inspection as for contracts awarded to third parties.

J. Framework Agreements
A framework agreement (FA) is an agreement with one or more firms that establishes the
terms and conditions that will govern any contract awarded during the term of the FA (a call-
off contract). The terms and conditions will usually include the fee rate, charge rate or pricing
mechanism. FAs may be established for the anticipated procurement of Goods, Works, or
Services, as and when required, over a specified period of time. An FA does not commit either
party to procure or supply. Once established, a FA provides a fast and efficient way to procure

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Goods, Works or Non-consulting Services. A multi-supplier FA allows a Borrower to select

from a number of firms, helping to ensure that each procurement represents best value for
money.

K. Cross Project Opportunities

This stage involves undertaking a review of opportunities for using contracts that currently
exist and how requirements across Projects may be combined to increase leverage through
economies of scale and optimized resource planning and scheduling. In addition, these
opportunities serve to reduce the time spent by the Borrower putting contracts in place for a
Project. These opportunities include:

• Buying goods and services from existing framework agreements if already established;
• Making use of other agreements (e.g. UN Office for Project Services (UNOPS) contracts
to buy vehicles);
• Leverage buying power across Projects (e.g. if more than one Project is being
undertaken in a country and there is common expenditure then buying can be done on
a combined basis).

8.5.3 Market Approache

Approaches
In addition to choosing the approved selection method and arrangement, a market approach
must also be identified.

The World Bank’s Procurement Principles determines that an open, competitive approach to
procurement is preferred as it is the optimum solution to achieving the Core Principles. The
PPSD can be used to justify an alternative approach if merited and justified by the
Project’s/contract’s circumstances.

A. Type of Competition
The various types of competition include:

1. Open;
2. Limited;
3. International;
4. National; or
5. No Competition – Direct Selection.

These competition types are described below, along with a description of when they may be
appropriate to be used. The main source of information to make the decision on the type of
competition will be the market analysis report.

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1. Open Competition
An open competitive approach to market is the Bank’s preferred approach as it provides all
eligible prospective Bidders/Proposers with timely and adequate advertisement of a
Borrower’s requirements and an equal opportunity to bid/propose for the required Goods,
Works, or Services. Any approach, other than open competition, shall be justified by the
Borrower.

2. Limited Competition
A limited competitive approach to market is by invitation only, without advertisement. It may
be an appropriate method of selection where there are only a limited number of firms or there
are other exceptional reasons that justify departure from open competitive procurement
approaches.

3. International Competition
Approaching the international market (international competitive procurement) is appropriate
when the participation of foreign firms will increase competition and may assure the
achievement of best VfM and fit-for-purpose results.

Open international competitive procurement, for which international advertisement is

required in accordance with these Procurement Regulations, is the preferred approach for
complex, high-risk, and/or high-value contracts.

4. National Competition
Approaching the national market may be appropriate when the procurement is unlikely to
attract foreign competition because of:

a) the size and conditions of the market;

b) the value of the contract;
c) activities that are scattered geographically, spread over time, or are labor- intensive;
or
d) the Goods, Works, or Non-consulting Services are available locally at prices below the
international market.

Approaching the national market may also be appropriate when the advantages of
approaching the international market are clearly outweighed by the administrative or financial
burden involved. If foreign firms wish to participate in open national competitive procurement,
they are allowed to do so on the terms and conditions that apply to national firms. When
approaching the national market, the country’s own procurement procedures may be used.

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5. No Competition - Direct Selection

Direct selection may be appropriate under the following circumstances:

a) Single-source Selection (preferred supplier from several sources):

i. An existing contract not originally financed by the Bank, for goods, works or
services, awarded in accordance with procedures acceptable to the Bank, may be
extended for additional goods, works, and non-consulting services of a similar
nature, if it is properly justified, if no advantage may be obtained by competition,
and if the prices are reasonable;
ii. There is a justifiable requirement to re-engage a supplier that has previously
completed a contract with the Borrower to perform a similar type of contract. The
justification shall show satisfactory performance of the supplier in the previous
contract, that no advantage may be obtained by competition, and that the prices
are reasonable;
iii. The procurement is both very low-value and low-risk as agreed in the Procurement
Plan;
iv. The case is exceptional, for example, in response to natural disasters and
emergency situations.
b) Sole-source Selection (only one source possible):
v. Standardization of goods that need to be compatible with existing goods may
justify additional purchases from the original supplier. For such purchases to be
justified, the advantages and disadvantages of another brand or source of
equipment should have been considered on grounds acceptable to the Bank;
vi. The required equipment is proprietary and obtainable from only one source;
vii. The procurement of certain goods from a particular supplier is essential to achieve
the required performance or functional guarantee of an equipment, industrial
plant, or facility;
viii. When the goods, works, or non-consulting services provided in the Borrower’s
country by a State Owned Enterprises (SOE), University, or a research centre, are
of a unique and exceptional nature because of the absence of suitable private
sector alternatives, or as a consequence of the regulatory framework, or because
its participation is critical to Project implementation.

B. Number of Envelopes/Stages
Env elopes/Stages

1. Single Stage – One Envelope

Single-stage procurement is most appropriate when the specifications and requirements are
sufficient to enable submissions of complete Bids/Proposals. Single stage-one envelope
procurement requires submission of both technical and financial Bids/Proposals in one
envelope.

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2. Single Stage - Two Envelopes

If appropriate, a two-envelope process may be used in single-stage procurement. The first
envelope contains the qualifications and technical part and the second envelope the financial
(price) part; the two-envelope are opened and evaluated sequentially.

3. Multi Stage
It may often be impractical to prepare complete technical specifications in advance for the
procurement of:

a) large complex facilities for which a turnkey contract will be awarded for the design and
build of a Plant;
b) Works of a complex and special nature; or
c) complex information and communication technology that is subject to rapid
technological advances.

In the first stage, Proposals are invited on the basis of a conceptual design or performance or
functional specification, subject to the Borrower’s conducting confidential discovery and
clarification meetings to learn about possible solutions. In the second stage, the request for
bids/request for proposals document may be amended to reflect the discoveries made in the
confidential meetings, and issued to the qualified Bidders/Proposers, requesting them to
submit final Proposals. As required in the request for bids/request for proposals document,
the second stage may be submitted in one (1) envelope, or two (2) envelopes for the technical
and financial parts respectively where the two envelopes are opened and evaluated
sequentially.

C. Best and Final Offer (BAFO)

BAFO is an option under which the Borrower invites Bidders/Proposers that have submitted
substantially responsive Bids/Proposals to submit their best and final offer. Such a process
may be appropriate when the procurement process would benefit from Bidders’/Proposers’
having a final opportunity to improve their Bids/Proposals, including by reducing prices,
clarifying or modifying their Bid/Proposal, or providing additional information.

D. Negotiations
Negotiations can take place following Bid/Proposal evaluations and before final contract
award. Any negotiation shall be in accordance with the requirements of the request for
bids/request for proposals document. Negotiations may involve terms and conditions, price,
and/or social, environmental, and innovative aspects, as long as they do not change the
minimum requirements of the Bid/Proposal.

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8.5.4 Pre / Post Qualification and Initial Selection

Pre-qualification and post qualification are methods used to ensure suppliers with appropriate
skills, experience, track record capacity, and capability, are invited bid or are awarded
contracts. It is a critical activity in ensuring successful selection of suppliers and ultimately
getting Projects delivered.

This can take three forms:

A. Pre-qualification;
B. Initial selection
C. Post-qualification.

Prequalification and Initial Selection are processes used to shortlist Applicants in the
procurement of Goods, Works and Non-consulting Services. These processes ensure that only
those with appropriate and adequate capacity, capability and resources are invited to submit
Bids/Proposals. In undertaking a Prequalification or Initial Selection the Borrower shall use
the Bank’s Standard Prequalification document/Initial Selection document.

Prequalification or Initial Selection is appropriate for large or complex contracts, or in other

circumstances, such as: the need for custom-designed equipment, Plant, specialized services,
some complex information and technology, procurement under turnkey, design and build, or
management contracting in which the high costs of preparing detailed Bids/Proposals could
discourage competition.

The assessment of an Applicant’s qualifications shall not take into consideration the
qualifications of other firms such as its subsidiaries, parent entities, affiliates, subcontractors
(other than specialized subcontractors if permitted in the Prequalification/Initial Selection
document), or any other firm different from the firm that submitted the
Prequalification/Initial Selection Application.

When the time elapsed between the Borrower’s decision on the list of prequalified/ initially
selected Applicants and the issuance of request for bids/request for proposals documents is
longer than twelve (12) months, the Bank may require that a new Prequalification/Initial
Selection process is conducted through re-advertisement.

A. Prequalification
Prequalification is normally used with Requests for Bids and is optional depending on the
nature and complexity of the Goods, Works or Non-consulting Services. In Prequalification,
minimum requirements are normally assessed on a pass/fail basis against such criteria as:
eligibility, experience, technical capability and financial resources. These take into account
objective and measurable factors such as: experience, satisfactory past performance,
successful completion of similar contracts over a given period, capability of construction

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and/or manufacturing facilities, financial situation, and eligibility. All Applicants that
substantially meet the minimum qualification requirements are invited to submit a Bid.

B. Initial Selection
Initial Selection is normally be used with Request for Proposals and should be used for all
Competitive Dialogue processes. It enables the Borrower to invite only the highest ranked
Applicants to submit Proposals. Initial selection involves a two-step process. The first step is
similar to the Prequalification process described above. This establishes the long-list of
Applicants. Long-listed Applicants are then evaluated against rated criteria. After ranking
the combined rated criteria scores the Borrower selects the highest ranked Applicants to
submit Proposals.

C. Post-
Post-Qualification
Qualification
If Bidders/Proposers have not been prequalified/ initially selected, the Borrower should specify
appropriate qualification requirements in the request for bids/request for proposals document
to verify that a Bidder/Proposer that would be recommended for contract award has the
capability and resources to effectively carry out the contract. The assessment of a firm’s
qualifications shall not take into consideration the qualifications of other firms such as its
subsidiaries, parent entities, affiliates, subcontractors (other than specialized subcontractors
if permitted in the request for bids/request for proposals document), or any other firm
different from the firm that submitted the Bid/Proposal.

8.5.
8.5.5 Selecting the Right Combination
In determining the right combination of the activities to designing the approach to market, the
decision on the type of selection method is primarily driven by the level of competition in the
market, the number of capable suppliers available, the specificity of the requirements, and the
inherent risks involved in delivery. This information should come from the:

• Market Analysis including the Value and complexity of the contract as determined by
the supply position model (Section 4.3.1 of the PPSD Guidance)
• Market Engagement Strategy (Section 4.3.7 of the PPSD Guidance);
• Procurement Risk Analysis (Section V of the PPSD Guidance);

Applying this information to each contract and then to the chosen combination of selection
methods and market approaches should help keep all he contracts that make up the Project
consistent.

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8.6 Evaluation Methods

Evaluation methods are concerned with establishing the process by which supplier bids and
proposals are assessed to determine the supplier that offers the best VfM (and will therefore
deliver the right result/PDOs).

The principle of VfM means the effective, efficient, and economic use of resources, which
requires the evaluation of relevant costs and benefits, along with an assessment of risks, and
non-price attributes and/or life cycle costs, as appropriate. Price alone may not necessarily
represent VfM.

The evaluation criteria must be designed to enable the Borrower to achieve best VfM in
procurements financed by the Bank.

There are two methods for selecting suppliers based on identifying the most advantageous
bid/proposal:

a) When rated criteria are used, the substantially responsive bidder that meets the
qualification criteria, and has submitted the best evaluated bid/proposal is selected;
and;
b) When rated criteria are not used, the bidder that meets the qualification criteria and
whose bid/proposal has been determined to be (i) substantially responsive to the
bidding/request for proposals document, and (ii) the lowest evaluated cost (lowest
evaluated bid/proposal) is selected.

The Borrower needs to ensure that the evaluation criteria are comprehensive enough to cover
the issues raised in Sections IV and V of the PPSD Guidance. The evaluation criteria need to
be appropriate to the type, nature, market conditions, and complexity of what is being
procured and must be clearly specified in detail in the RFB/RFP document.

8.6.1 Evaluation Selection Methods

The decision on the type of evaluation method should be used will determine which of the
following selection methods will be used in the SPD/bidding documents for evaluation of
suppliers. They are:

A. Quality Cost Based Selection (QCBS);

B. Fixed Budget Based Selection (FBS);
C. Least Cost Based Selection (LCS);
D. Quality Based Selection (QBS);
E. Consultant’s Qualifications Based Selection (CQS); and
F. Direct Selection.

Methods A-E can only be used for consulting services.

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The evaluation criteria shall be appropriate to the nature and complexity of the procurement.
The description of each selection method below includes a description of the circumstances in
which use of each method is best suited.

The following are approved selection methods for Consulting firm:

a. Quality Cost Based Selection (QCBS);

b. Fixed Budget Based Selection (FBS);
c. Least Cost Based Selection (LCS);
d. Quality Based Selection (QBS);
e. Consultant’s Qualifications Based Selection (CQS);
f. Direct Selection; and
g. Commercial Practices.

A. Quality and Cost-

Cost- based Selection
QCBS is a competitive process among Shortlisted consulting firms under which the selection
of the successful firm takes into account the quality of the Proposal and the cost of the
services. The request for proposals document shall specify the minimum score for the
technical Proposals. The relative weight to be given to the quality and cost depends on the
nature of the assignment. Among the Proposals that are responsive to the requirements of
the request for proposals document and are technically qualified, the Proposal with the highest
combined (quality and cost) score is considered the Most Advantageous Proposal.

B. Fixed Budget-
Budget- based Selection
Like QCBS, FBS is a competitive process among Shortlisted consulting firms under which the
selection of the successful firm takes into account the quality of the Proposal and the cost of
the services. In the request for proposals document, the cost of services is specified as a fixed
budget that shall not be exceeded. FBS is appropriate when:

a. the type of Consulting Service required is simple and can be precisely defined;
b. the budget is reasonably estimated and set; and
c. the budget is sufficient for the firm to perform the assignment.

The request for proposals document specifies the budget and the minimum score for the
technical Proposals. The Proposal with the highest technical score that meets the fixed budget
requirement is considered the Most Advantageous Proposal.

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C. Least Cost-
Cost- based Selection
Similar to QCBS, LCS is a competitive process among Shortlisted consulting firms under which
the selection of the successful firm takes into account the quality of the Proposal and the cost
of the services. LCS is generally appropriate for assignments of a standard or routine nature
(such as engineering designs of non-complex Works), for which well-established practices and
standards exist.

The request for proposals document specifies the minimum score for the technical Proposals.
Among the Proposals that score higher than the minimum technical score, the Proposal with
the lowest evaluated cost is considered the Most Advantageous Proposal.

D. Quality-
Quality- based Selection
Under QBS, the Proposal quality is evaluated without using cost as an evaluation criterion. If
the request for proposals requests both technical and financial Proposals, the financial
Proposal of only the highest technically qualified firm is opened and evaluated to determine
the Most Advantageous Proposal. However, if the request for proposals document requests
only technical Proposals, the firm with the highest-ranked technical Proposal is invited to
submit its financial Proposals for negotiations.

QBS is appropriate for the following types of assignments:

a. complex or highly specialized assignments for which it is difficult to define precise TOR
and the input required from the firm, and for which the Borrower expects the firm to
demonstrate innovation in its Proposals;
b. assignments that have a high downstream impact; and
c. assignments that can be carried out in substantially different ways, so that Proposals
will not be comparable.

E. Consultant’s Qualification-
Qualification- based Selection
The Borrower shall request expressions of interest (REOI), by attaching the TOR to the REOI.
At least three qualified firms shall be requested to provide information about their relevant
experience and qualifications. From the firms that have submitted an EoI, the Borrower
selects the firm with the best qualifications and relevant experience and invites it to submit
its technical and financial Proposals for negotiations. Advertisement of REoIs is not
mandatory.

CQS is appropriate for small assignments or emergency situations in which preparing and
evaluating competitive Proposals is not justified.

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F. Direct Selection
Proportional, fit-for-purpose, and VfM considerations may require a direct selection (single-
source or sole-source selection), approach, that is: approaching and negotiating with only one
firm. This selection method may be appropriate when only one firm is qualified, a firm has
experience of exceptional worth for the assignment, or there is justification to use a preferred
firm.

8.6.2 Evaluation of Costs

Evaluation of costs can be on the basis of:

A. Adjusted bid price;

B. Life-cycle costs.

A. Adjusted Bid Price

Adjustments of Bid price include arithmetic correction, any discounts, and other adjustments
specified in the request for bids/ request for proposals document for evaluation purposes,
including adjustments for deviation in the delivery/implementation schedule and/or payment
terms, and corrections for minor deviations or omissions.

B. Life-
Life- cycle costs
Life cycle costing should be used when the costs of operation and/or maintenance over the
specified life of the Goods or Works are estimated to be considerable in comparison with the
initial cost and may vary among different Bids/Proposals. It is evaluated on a net present cost
basis.

8.6.3 Domestic Preference

When open international competitive procurement is used to procure Goods or Works, a
margin of domestic preference may be provided in the evaluation of Bids/Proposals for the
following:

a. Goods manufactured in the Borrower’s country, compared with Goods manufactured

abroad. The preference is fifteen percent (15%) added to the Carriage and Insurance
Paid (CIP) price of the Goods manufactured abroad; and
b. Works in member countries below a specified threshold of per capita gross national
income (as defined annually by the Bank), when comparing Bids/Proposals from eligible
domestic firms with those from foreign firms. The preference is seven and a half
percent (7.5%) added to the price offered by the foreign firms.

Domestic preference shall not be applied to Plant.

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8.6.4 Rated Criteria for Assessing Quality

Rated-type criteria, that is, non-price attributes assessed with merit points, are used, when
benefits may not be quantifiable (or the evaluation criteria cannot be expressed in monetary
terms), and the benefits associated with these rated criteria are expected to vary among
different Bids/Proposals.

The rated-type criteria, and sub-criteria as appropriate, are prioritized, assigned merit points,
and weighted according to their relative importance in meeting the desired outcome. The
number of sub-criteria should be kept to the minimum essential.

Rated criteria may include, but are not limited to, the following features as relevant:

a. quality of methodology and work plan;

b. performance, capacity, or functionality features; and
c. sustainable procurement.

8.7 Contract Management

Contract management is a formal process that focuses on ensuring both the supplier and the
Borrower meet their contractual commitments to time, cost, and quality. It requires
systematic and efficient planning, execution, monitoring, and evaluation to optimize
performance while managing risks to ensure that both parties fulfil their contractual
obligations with the ultimate goal of achieving VfM and contractual results. It involves:

• Tracking and monitoring of delivery and costs;

• Contract administration;
• Being clear on roles and responsibilities of both Borrower and supplier;
• Managing relationships with both the supplier and key stakeholders;
• Being proactive throughout the contract to anticipate problems and issues before they
arise; and
• Managing problems and issues as they arise, quickly, effectively, fairly, and in a
transparent manner.

From the Borrower’s perspective contract management:

• Ensures the supplier delivers upon their commitments;

• Obtains best VfM during the life of the contract;
• Manages supply risks for the duration of the contract;
• Continually challenges to drive best value in its contracts;
• Ensures effective contracts that continue to deliver the PDOs;

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• Demonstrates best procurement practice in the management of contracts; and

• Provides evidence to support any audits.

8.7.1 Contract Management Approach

Approach
The approach to defining the contract management requirements should consider:

• An understanding of the level of influence the Borrower may have over the supplier,
which is informed by the supply preferencing model analysis;
• An understanding of how much influence the Borrower needs over the supplier, which
is informed by the supply position model and procurement risk analysis;
• How the supplier will be managed through review meetings, progress reports, risk logs,
action plans, etc.;
• The key milestones and when they should be reviewed;
• The level of resources required to manage the contract effectively; and
• How performance will be assessed against pre-agreed measures, including key
performance indicators.

The approach to contract management should be proportionate to the value, risk, length, type,
and complexity of the contract and the type of market/suppliers who will be fulfilling the
contract.

Depending on the nature of the relationship with the supplier, the level of effort may change
for the Borrower.

For simple and low value contracts, the Contract Management Plan should include, as a
minimum, the following:

• Key roles and responsibilities;

• Key contractual dates and delivery milestones;
• Budget and payment milestones; and
• Record keeping requirements.

For high value, high risk, or complex contracts identified in the Procurement Plan, the Contract
Management Plans shall typically contain a summary of contract details such as:

A. Identified potential risks (such as delays in the contractor’s right of access to site,
payment delays and other defaults in the Borrower’s contractual obligations that could
potentially lead to contractual disputes) and its mitigation;
B. Key contacts, roles and responsibilities of the parties;
1. The names and contact details of the key contacts for each party shall be clearly
identified in the contract;

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2. Ensuring that each party has established the necessary authorizations and
delegations for its personnel at the beginning of the contract to ensure all
contracting decisions are valid and enforceable.
C. Communication and reporting procedures;
D. Key contractual terms and conditions that relate to delivery;
E. Contractual milestones including critical path (identified to ensure early detection and
mitigation of issues) and payment procedures consistent with contractual provisions;
F. Key contract deliverables;
1. Contract deliverables shall be identified and properly described so they can be
easily monitored;
2. Key contract deliverables shall be updated to account for change orders during the
execution of the contract.
G. KPIs and measurement process;
H. Contract variation/change control mechanisms;
I. Record keeping requirements; and
J. Issues management and escalation plan.

The approach to managing each contract needs to be determined in advance and where
described in the bidding documents to ensure the supplier allocates adequate resources to
supporting effective contract management. The supplier’s bid response, along with the
Borrowers contract management requirements, need to be combined into a Contract
Management Plan. The Contract Management Plan should be developed during contract
creation and ideally completed at the time the contract is signed. The plan should be developed
in consultation with the successful supplier.

8.7.2 Key Performance Indicators (KPIs)

KPIs are measures of contract performance that are aligned to the key outcomes that the
procurement approach has been designed to deliver. The KPIs should be “SMART” indicators
(Specific, Measurable, Attributable, Relevant, and Time-bound). They should also be directly
linked to the PDOs and the Procurement Objectives and this will help ensure contract delivery
is fully aligned with the desired outcome.

The KPIs should be included in the contract management plan, and if they link to incentive
mechanisms/payment decisions, they will need to be agreed and included as part of the
contract before it is signed.

8.7.3 Options Analysis

Before an options analysis can begin, each of the procurement options summarized in
individual activity templates should be summarized as a short narrative.

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Option analysis is the last analytical stage of the PPSD. To select the preferred procurement
approach a comparative analysis needs to be undertaken of each procurement approach. This
involves three main activities:

• An evaluation of likely success of each potential procurement approach against the

Procurement Objectives;
• A review of the Procurement Risks to establish which procurement approach best
addresses the known risks; and
• A SWOT Analysis of each procurement approach.

8.7.4 Evaluation of Procurement Approach against Procurement

Objectives
The model in Figure 24 is a simple tool to undertake this evaluation. The different procurement
options (as summarized above) need to be listed in the first column with the Procurement
Objectives listed in the first row.

A simple rating is then applied to assess whether each individual procurement approach meets
each of the Procurement Objective. The ratings are:

-1 = does not meet the objective;

0 = meets the objective;
1 = exceeds the objective.
Once all the procurement approaches and procurement objectives have been assessed, the
points for each option need to be summed together. Finally each option should be ranked from
highest to lowest score, noting that any option that fails to meet an objective should be
eliminated.

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Figure 24 – Option Analysis

8.7.5 Review of the Procurement Risks to establish the

procurement approach that best addresses the known
risks
The second stage is to look at the procurement risk analysis undertaken earlier and evaluate
how each procurement option addresses the risks identified. This analysis needs to be
completed on any of the remaining procurement options after undertaking the above
evaluation. This stage is based on making an assessment of the legacy risk that may exist for
each procurement approach, and whether the overall rating of the probability and impact have
reduced because of the application of that particular approach. The final output should be an
updated procurement risk plan for the preferred procurement approach.

After this assessment, it should be possible to now identify the final preferred procurement
approach.

8.7.6 SWOT Analysis of each procurement

procurement approach
The final stage of the process is to undertake a Strengths, Weaknesses, Opportunities and
Treats (SWOT) analysis of preferred procurement approach. The SWOT analysis (Figure 25)
should be carried out on the basis of the strengths and weaknesses of the procurement
approach, and the opportunities and threats that may arise during implementation of the
approach.

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Figure 25 – Procurement Approach SWOT

This final analysis is only concerned with:

• Fine tuning the preferred approach;

• Ensuring that there is a thorough understanding of the procurement option;
• Making sure nothing has been missed;
• Attempting to future proof the option by considering what could go wrong in
implementation; and
• Identifying any final refinement that could be made to improve its effectiveness.

Once this analysis has been completed, the only remaining step is to fully document the
preferred procurement approach taking on board any refinements identified via the SWOT
analysis.

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Section IX. Preferred Arrangements for Low-
Value
Section IX.
Low-Risk Activitiesow-Value Low-
IX. Preferred Arrangement for Low- Low-Risk Activities

This part of the PPSD template (Annex I) is used to record the procurement approaches for
activities that were identified as part of the Supply Positioning analysis in Section IV of the
PPSD Guidance as not requiring a detailed assessment and justification for the selected
procurement approach.

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Section X. Summary of PPSD to Support the
Preparation
Section X.
of the PAD by the Bank
X . Summary of PPSD to Support the Preparation of the PAD by the Bank

The final stage of the PPSD template (Annex I) is to provide a short summary of the
recommended procurement approach, which the Bank will use as part of preparing its PAD.
The summary should be a description of the recommended procurement approach and a
synopsis of the justification for that approach.

The following points should be considered in completing this Section.

A. How the procurement arrangements enable the delivery of VfM in achieving the PDOs,
particularly if the recommended approach is less than open competition or uses new
procurement techniques to the Borrower, or presents a high, or substantial risk. This
should include supporting justification from this PPSD as appropriate.
B. The key procurement risks identified and the mitigating measures proposed (e.g.
relating to the Country, Market Sector, Agency’s capacity assessment, and the
complexity of the procurement and the proposed procurement arrangements);
C. The oversight and monitoring arrangements for procurement, including applicability
and need for the Bank to provide hands-on expanded implementation support; whether
Alternative Procurement Arrangements are proposed; any proposed departure from
Policy thresholds or additional oversight (e.g. probity assurance) required e.g. due the
risk and value of contracts (Operational Procurement Review Committee) or due to
risk in the proposed procurement arrangements (e.g. negotiations, competitive
dialogue) and confirmation that an acceptable procurement plan covering the first 18
months of Project implementation is available;
D. The procurement arrangements for the high or substantial risk activities within the
Project in the Figure 26:

Figure 26
26 – High Risk Procurement Arrangements

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Annex I. Long Form PPSD Template

Annex I – Long Form PPSD Template

1. Project Overview
Where relevant, the information required in this Section of the PPSD can be drawn from the
Project Concept Note.

Country:

Full Project Name:

Total Finance ($):

Project Number:

A. Project Description:

B. Project Development Objectives:

C. Result Indicators:

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D. Proposed Procurement Contract Summary:

E. Legal/Policy Requirements:

2. Strategic Assessment of Operating Context and Borrower

Capability
2.1 Operational Context

A. Governance aspects

B. Economic aspects

C. Sustainability aspects

D. Technological aspects

Conclusions on Operational context to be addressed through

through the procurement
approach.
approach .

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2.2 Assessment of Borrower Capability and Project Implementation Unit

(PIU)
This subsection should describe features of the PIU that need to be addressed to ensure that
VfM is achieved. This subsection should address the following topics, as relevant to the
Project:

A. Experience implementing similar Projects and implementing World Bank Projects;

B. Experience of use of Alternative Procurement Arrangements;
C. The need for hands-on support to undertake a fit for purpose procurement planning,
contractor/consultant selection, and contract award;
D. Contract management capacity and capability;
E. Complaints management and dispute resolution systems;
F. Procurement capacity (previous experience, availability of resources and track record)
to undertake successful fit for purpose procurement planning, procurement process,
bid/proposal evaluation, supplier selection and contract award;
G. The reliance on, criticality of and use of professional advisors such as consultants to
augment Borrower capability; and
H. Lessons learned from the implementation of other similar Projects.

At the end of the Borrower’s capability assessment, a Resourcing Plan should be created.

Conclusions on Client Capability and PIU Assessment to be addressed.

2.3 Market Research and Analysis

This subsection should identify the specific contracts to be procured and include a market
analysis of each of the target market segments that is proportional in detail to the relative risk
and value of the contract within the Project conducted through a Supply Positioning Model. If
different markets fulfil different contracts within the Project, the market analysis should
research each market.

For low-value, low-risk contracts it will generally be sufficient to detail the procurement
approach in Section VII without further supporting analysis.

For all other contracts, the level of analysis to support the justification for the preferred
procurement arrangement should be proportional to the procurement risk and value of the
contract.

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This subsection should address the following topics, as relevant to the Project:

A. Research
1. Supply Positioning Model — Identify the risk and value thresholds of the project;
2. Segmentation of the market by geography (local, national, international),
specialization or differentiation;
3. Market sector dynamics — Nature and extent of competition, levels of experience,
capability and innovation, external influences and factors, Supplier Preferencing;
4. Market trends — Technology, new services, ownership structures and alliances,
market growth, new entrants;
5. Financial — Sources of cost and value, cost stability, pricing strategies and
mechanisms, cost and financial benchmarks; and
6. Procurement trends — Procurement s of other entities procuring similar contracts,
typical contract terms, common issues that inhibit or contribute to achieving value
for money, typical responses and lessons learned.
B. Analysis and Action
At the end of the Market Research stage, Borrowers should develop a range of Procurement
Approach Options and a Market Engagement Plan.

through
Conclusions on the Market Analysis to be addressed thro ugh the procurement
procurement approach.
approach.

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3. Procurement Risk Analysis

This subsection analyses and prioritizes the risks identified from Section 2 that relate to the
Operational Context, Market Analysis and PIU Assessment that could be mitigated through
the procurement approach.

A B Description of
Overal proposed
Procurement
Risk l Risk mitigation Risk
Process
Description Likelihood Impact Score through the Owner
Stage
Rating Rating (A*B) procurement
process

4. Stakeholder Analysis
Identify the main stakeholders who have an interest or impact on the Project and whether
their interest is one of responsibility, accountability, to be consulted or informed. The
identified Stakeholders will need to be engaged to understand what objectives they have from
the procurement.

Stakeholder Management Plan

Interest (Responsible, Stakeholder

Stakeholder Stakeholder Objectives from
Accountable, Management
(Name and Role) the Procurement
Consulted, Informed) Approach

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5. Procurement Objectives
Based upon the Strategic Analysis, Risk Assessment and Stakeholder Analysis, detail the key
Procurement Objectives that if achieved will support the delivery of the Project’s Development
Objectives and achieve value for money. The Procurement Objectives need to be SMART —
Specific, Measurable, Achievable, Realistic and Time-bound. The procurement objectives
should be tested with the identified Stakeholders to ensure agreement on the prioritized list
of Procurement Objectives.

Prioritized
Prioritized Procurement Objectives (expand as necessary):

1.

2.

3.

4.

5.

6. Procurement Approach Options and Recommendation

Please detail the options and the recommended procurement arrangement for the contracts
detailed in the Project description and the justification for the recommended procurement
arrangements based on the analysis above. This Section should be completed for each
contract required. Sections A-D below were identified in previous sections of this PPSD Long
Form. After the options analysis please detail your recommended procurement
approach/arrangement.

A. Contract description:

B. Contract category (Works, Goods, Consultancy Firms and Individuals, and Non-
consultancy services):

C. Estimated cost:

D. Contract approach (complete table below):

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Attribute Selected approach Justification

8.3.1 Specifications Conformance/Performance

Requirements

8.3.2 Sustainability Yes/No

Requirements

Attribute Selected Approach

Approach Justification
8.4.1 Contract Type A. Traditional
B. Design and Build
C. Design, Build, Operate,
Maintain
D. Design and Build –
Turnkey or Prime
Contractor
E. EPC and EPCM
F. Other_________
8.4.2 Pricing and Costing A. Lump Sum
Contract Strategy

Mechanism B. Performance based

contracts
C. Schedule of
Rates/Admeasurement
D. Time and Materials
E. Cost Plus
8.4.3 Selection of Cost and
8.4

Price Mechanism Required Allocation of Risk

8.4.4 Supplier Relationship Adversarial/Collaborative

8.4.5 Price Adjustments A. None, Fixed Price

B. Negotiated
C. Percentage
8.4.6 Form of Contract State any special conditions of
(Terms and contract
Conditions)

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Attribute Selected Approach Justification

8.5.1 Selection Method A. Request for Proposals
(RFP)
B. Requests for Bids (RFB)
C. Requests for
Quotations (RFQ)
D. Direct Selection
8.5.2 Selection A. Competitive Dialogue
Arrangement B. Public Private
Partnerships (PPP)
C. Commercial Practices
D. United Nations (UN)
Agencies
E. e-Reverse Auctions
F. Imports
G. Commodities
H. Community Driven
Selection Methods

Development
I. Force Accounts
J. Framework Agreements
K. Cross Project
Opportunities
8.5.3 Market Approach A. Type of Competition
1. Open
2. Limited
8.5

3. International
4. National
5. No Competition
– Direct
Selection
B. Number of Envelopes /
Stages
1. Single Envelope
2. Two Envelopes
3. Single Stage
4. Multi Stage
C. BAFO (Yes/No)
D. Negotiations (Yes/No)
8.5.4 Qualification A. Pre-Qualification
B. Initial Selection
C. Post-Qualification

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Attribute Selected approach Justification

8.6.1 Evaluation Selection A. Quality Cost Based
Method Selection (QCBS)
B. Fixed Budget Based
Selection (FBS)
C. Least Cost Based
Selection (LCS)
8.6 Evaluation Methods

D. Quality Based Selection

(QBS)
E. Consultant’s
Qualifications Based
Selection (CQS)
F. Direct Selection
8.6.2 Evaluation of Costs A. Adjusted Bid Price
B. Life-Cycle Costs
8.6.3 Domestic Preference National/international

8.6.4 Rated Criteria List the type of criteria to be

used (mandatory/desired)
8.7.1 Contract Outline the approach to be used
8.7 Contract Management

Management
Approach

8.7.2 Key Performance List the key measures of

Indicators (KPIs) – success for contract
Measures management:

The output of this section will be a:

• Procurement Approach stating how the Borrower is going to approach the market,
select the supplier, and finalize the contract;
• Set of selection methods and market approaches;
• Procurement Plan that summarises how each contract within the Project will be
procured.

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7. Preferred Arrangement for Low Value Low Risk Activities

This Section of the PPSD is used to record the procurement approaches for contracts that
were identified as part of the Supply Positioning analysis in Section 2 as not requiring a
detailed assessment and justification for the selected procurement approach.

Estimated Procurement Approach

Contract Category
Cost and Method

8. Summary of PPSD to Support the Preparation of the PAD by the

Bank
The final stage of the PPSD is to provide a short summary of the recommended procurement
approach, which the Bank will use as part of preparing its PAD. The summary should be a
description of the recommended procurement approach and a synopsis of the justification for
that approach.

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Annex II. How to Undertake Market Analysis

Annex II - How to Undertake Market Analysis

There are a number of procurement tools and techniques available to support market analysis
that help not only in structuring the research, but also for analyzing the information to draw
conclusions and develop the procurement approach.

The key tools and techniques to support market analysis are:

1. Strengths, Weaknesses, Opportunities and Threats (SWOT);

2. Porter’s 5 Forces Analysis;
3. PESTLE;
4. Supplier Preferencing;
5. Supply Positioning and Supply Preferencing; and
6. Supply Chain Analysis.

As with the overall preparation of the PPSD, the application of these tools needs to be
proportionate to the level of market research and information required to develop a fit for
purpose procurement approach. In most instances, it is envisioned that each of the tools will
need to be utilized.

1. SWOT Analysis
SWOT is an analysis of the internal influences on a Borrower’s organization, over which the
Borrower has an element of control. Opportunities and Threats are an analysis of external
influences on a Borrower’s organization, over which the Borrower tends to have far less
control.

When using a SWOT analysis (Figure 28), the objective is to help Borrower’s develop a full
awareness of all the factors, positive and negative, that may affect the delivery of the
procurement and Project. It will assist with the identification of the procurement approach
that will best deliver the fit for purpose procurement approach and the Project requirements.

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Figure 28 – SWOT Analysis Model

Strengths are the qualities that enable the Borrower to deliver a successful Project. Strengths
can be either tangible or intangible. Basically, these are “what the Borrower does well” and are
seen as core expertise including staff capability, experience, financial resources, effective
processes, and reputation, etc.

Weaknesses are what may prevent a Borrower delivering a successful Project and can be seen
to limit the achievement of optimum VfM. Weaknesses in a Borrower may be insufficient
capacity, poor governance and decision-making, etc. Weaknesses are controllable and need
to be identified and either minimized or eliminated, wherever possible.

Opportunities are factors that exist in the external business environment within which a
Borrower operates. Opportunities are factors that allow a Borrower to take advantage of
conditions in its business environment to better plan and improve the execution and
implementation of procurement approaches that enable it to deliver a Project successfully.

A fundamental element of developing a fit for purpose procurement approach is to identify

and leverage opportunities whenever they arise, to achieve the benefit of these opportunities.
Opportunities may arise from a variety of sources such as a supplier’s ability to offer
innovation, strong competition in a marketplace, attractiveness of the contract, and utilizing
new technology.

Threats arise when conditions in the external environment jeopardize the delivery of a Project.
Examples of threats are; unrest among stakeholders, quickly changing technology, and
increasing competition leading to excess capacity, price wars, and reduction of industry
profits.

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Figure 29 outlines a summary of the typical issues that a Borrower should consider when
completing a SWOT analysis, while Figure 30 is an example of how these considerations can
be summarized into a number of key questions.

Figure 29 - SWOT Analysis Considerations

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Figure 30 - SWOT Analysis Questions

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2. Porter’s F ive F orces Analysis

Porter’s Five Forces Analysis is a tool used to evaluate a market to determine the level of
competition and where the balance of power resides, between suppliers and buyers, within
that market. Its purpose is to help identify the type of competition that exists and how the
procurement approach can take advantage of a Borrower’s strength in a competitive market
place or defend itself against anti-competitive supplier tactics where competition is more
limited.

2.1 Porter’s Five Forces Dimensions

According to Porter (Figure 31), the nature of competition in any industry can be considered
on the basis of the following five forces:

1. Bargaining power of suppliers (supplier power);

2. Bargaining power of buyers (buyer power);
3. Rivalry among current competitors (competitive rivalry);
4. Threat of substitute product/services (product and technology development); and
5. Threat of new potential entrants (new market entrants).

Figure 31 – Porter’s Five Forces Analysis1

1 Reference - Michael E Porter's five forces of competitive position model

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Bargaining Power of Suppliers

Bargaining Power of Suppliers refers to the potential for suppliers to increase their prices.
When suppliers are in a position of strength, they can increase their profits by increasing their
prices. A supplier’s strength can be determined by assessing:

• The availability of substitutes. A strong supplier’s goods, services, and works tend to
be unique;
• The cost of switching to another supplier’s product. A strong supplier exists where the
buyer (Borrower) has to pay high switching costs to move to an alternative supplier’s
product; and
• The importance of goods, service, and works to the buyer (Borrower). A strong supplier
exists where the buyer has a strong dependency or need for the supplier’s product.

Bargaining Power of Buyers

Bargaining Power of Buyers refers to a buyer’s ability to drive down the prices charged by the
suppliers in the market; or to increase supplier costs in the market by demanding better
quality and service. The buyer’s strength can be determined by assessing:

• The size of their requirement. A buyer is in a strong position when the requirement is
large either to the market in general or especially in relation to an individual supplier’s
size within that market;
• The ease with which the buyer can procure from other suppliers. A buyer is in a strong
position when there are many other suppliers providing the same or similar services,
goods, and works in the market, at a lower or similar cost and the buyer would not be
subject to any switching costs; and
• The number of other buyers in the market. A buyer is in a strong position when there
are few other buyers in the market for an individual supplier’s goods, services, and
works.

Rivalry Amongst
Amongst Current Competitors
Rivalry among current competitors refers to the competitive struggle for market share
between suppliers in a market. Extreme rivalry amongst established suppliers poses a strong
threat to profitability. The strength of rivalry in a marketplace can be determined by assessing
the:

• Extent of barriers to exit and entry;

• Amount of fixed costs a supplier has to bear;
• Competitive structure of industry;
• Presence of global customers;
• Absence of switching costs;

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• Growth rate of the market; and

• Demand conditions.

Threat of Substitute Products

Threat of substitute products refers to the availability of other goods, services or works that
have the ability to satisfy customer needs equally as effectively. Substitutes create an upper
limit on the price that suppliers can charge in a market. The smaller the number of close
substitutes, the greater the opportunity for a supplier to increase their prices.

The combined impact and interrelationship of Porter’s Five Forces differs from market to
market. Jointly they determine the competition, profitability, and the behaviors of suppliers
within a market because they shape the prices that can be charged, the costs that can be
borne, and the investment required to compete in the industry.

From a Borrower’s perspective, this tool will help determine where the balance of power lies in
the market and what level of influence and impact the Borrower’s requirements will have on
the market. The tool is used to determine the type of market and ultimately the type of
competition that exists within that market.

Risk of Entry by Potential Competitors

Risk of entry by potential competitors refers to suppliers who are not currently competing in
the marketplace, but have the potential to do so if given a choice. Entry of new suppliers
increases the market capacity, increases competition for market share, and lowers the current
prices. The threat of entry by potential competitors can be determined by assessing the
extent of barriers to entry such as:

• Economies of scale available to suppliers currently in the market;

• Customer brand loyalty to existing supplier goods, services, and works;
• Government regulation;
• Customer switching costs;
• Cost advantage enjoyed by existing suppliers in the market;
• Ease of distribution;
• The value of set up costs and capital investment.

3. Types of Competition
Figure 32 lists five different types of competition that broadly exist in markets and describes
the individual characteristics of each type.

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Figure 32 – Types of Competition

Knowledge of the type of competition that exists is a prerequisite to being able to develop the
right procurement approach. For example, in a monopolistic/oligopoly market (where one, or
few supplier(s) hold all the power) designing a procurement approach that is characterized by
competitive bidding, with significant risk transfer to the supplier and with supplier selection
being based on lowest evaluated cost, is not likely to be successful. In these circumstances, a
negotiated approach based on open book pricing potentially linked to a longer-term contract
is more likely to be more effective. Therefore, the type of market will have a direct influence
on the procurement and will help the Borrower determine the:

• Type of competitive bidding (as determined by the level of completion and the
availability of substitutes/alternatives);
• Most effective pricing or costing mechanism (as determined by the market pricing
approach); and
• Level of risk transfer the market will realistically bear (as determined by the relative
strength and power of the buyer and the supplier’s motivation to participate).

4. PESTLE Analysis
PESTLE stands for Political, Economic, Social, Technological, Legal, and Environmental. It is a
tool for understanding what external forces (Figure 33) influence and shape a market place
and the suppliers that work in that market place.

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Figure 33 - PESTLE Analysis

PESTLE analysis is an assessment of a Borrower’s operating and business environmental

influences and how they directly affect the Borrower, or indirectly affect the Borrower, via
their suppliers.

The purpose of a PESTLE is to provide information and “intelligence” to guide the overall design
of the procurement approach. In a similar way to the SWOT analysis, the procurement
approach needs to maximize opportunities identified and minimize any identified threats. This
will help Borrowers make decisions on the tailored procurement approach that will best align
procurement approach to deliver the Project requirements.

In particular, it provides a ‘big picture’ understanding of the operating and business

environment in which the Borrower exists. It is a very effective tool to support risk
management as it identifies a broad spectrum of risks that may affect the procurement
approach.

Figure 34 provides an overview of the various factors that need to be considered when
completing a PESTLE analysis. Each of the factors should be considered in the form of a
question such as “what is” and “is there”. The responses to these questions needs to be
descriptive as opposed to “yes” or “no” responses. The PESTLE needs to be completed on the
basis of what are the relevant factors specific to the Project needs, how will the factors affect
the Project’s delivery, or what does it mean for the procurement approach for the Project’s
delivery.

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Figure 34 - Overview of Factors to Consider in Undertaking a PESTLE Analysis

Political
The key considerations under political factors are:

• What is the degree of government intervention in the economy – is it a free market,

state run, mixture with a bias towards state run, etc.?
• How stable is the government – is there an election coming up, has the government
recently changed?
• How is the country governed – is it provincial, federal, national, etc.?
• Have there been any recent issues of fraud?
• Does the World Bank consider the country to be a Small State, in a situation of fragility
or in conflict or emergency? (For more information [Link]/procurement)
• Does the rule of law apply throughout the country?
• What impacts do government attitudes to international trade have – does it encourage
international trade, is their protectionism for domestic industry?
• What goods, services, or works does government want to provide itself through state
owned enterprises?
• What industries does the government provide business support for?

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• What political decisions impact vital areas for business such as:
o The education of the workforce?
o The health of the nation?
o The quality of the infrastructure, such as the road and rail system?
• Are there any trends in government decisions?
• What are the other factors in the current political climate?

Economic
The key considerations under economic factors are:

• What are the effects of interest rates, taxation changes, economic growth, inflation
and exchange rates on the behaviour of organizations? For example:
o Higher interest rates may deter investment because it costs more to borrow
money;
o A strong currency may make exporting more difficult as the exchange rate may
raise the prices;
o Inflation may provoke higher wage demands from employees and raise costs;
o Higher national income growth may boost demand for a supplier's products;
o Unemployment results in less spending.
• What are the forecasted future trends for these factors?
• Is there a balanced and skilled workforce available?
• Are commodity prices stable (especially those linked to the Project requirements)?
• Are there any currency restrictions in place?
• What other factors are there in the current economic climate?

Social
The key considerations under social factors are:

• Are there any changes in social trends that can impact the demand for a supplier's
products, and the availability and willingness of individuals to work? For example:
o What is the effect of a growing population?
o What is the impact of an increase in costs for suppliers who are committed to
paying a fair wage to their employees?
o Are there any impacts of recruiting employees from outside the host country?
o What is the approach to the provision of education and health services and what
impact does this have?

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o Is there any conflict in the country (on what basis) and what impact does this have?
o Are there any specific issues that will have an impact at a community level?
o What are the effects of changing attitudes to work?
• What are the key recommendations of the Environmental and Social Impact
Assessment (ESIA)?
• What other factors are there in the current social/cultural climate?

Technological
The key considerations under technological factors are:

• What new technologies have created new products and new processes e.g. computer-
aided design?
• Do these technologies:
o Reduce costs;
o Improve quality;
o Encourage innovation;
o Improve risk management.
• How have these emerging technologies benefited consumers and the organisations
providing the products?
• What is the rate of technological change and what is the effect?
• How available is everyday technology such as computers, mobile phones, intranet,
cloud computing, voice over internet protocol (VoIP) and Software as a Service (SaaS)?
• What other factors are there in the current technological climate?

Legal
The key considerations under legal factors are:

• How do legal requirements or any legal changes impact on the way Borrowers or
suppliers operate? For example:
o Health and safety laws;
o Disability discrimination legislation;
o The minimum wage;
o Employment law;
o Laws related to business competition;
o Laws related to the environment (e.g. sustainability, carbon emissions, etc.)
• How might legal changes affect Borrower costs or supplier costs?

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• What are specific local laws that may impact suppliers and contracts?
• Will changes in law(s) require new systems and procedures have to be developed?
• Will changes in law(s) change demand for goods, services and works?
• What other factors are there in the current legal climate?

Environmental
The key considerations under environmental factors are:

• How is the growing desire to protect the environment impacting Projects?

• How is the general move towards more environmentally friendly products and
processes affecting demand patterns and business opportunities?
• Are there any regulations, standards, or requirements of the Borrower, including local
or national requirements?
• What is the country’s attitude to Health and Safety?
• How might these impact the procurement approach?
• What other factors are there in the current environmental climate?

The PESTLE analysis will provide a lot of information so it is important to consider what the
findings actually mean for the procurement approach. It is important to identify factors that
could impact it both positively and negatively, while drawing conclusions from this information
to inform the procurement approach being developed.

The PESTLE is particularly helpful at identifying risks, which should be considered as part of
the Procurement Risk Management in Section V of the PPSD Guidance, and find ways to
reduce them or work around them.

5. Supplier Preferencing
Supplier Preferencing is a tool that identifies how a supplier views a Borrower (as a customer)
and depending on this view, how the supplier is likely to behave. Supplier preferencing
categorizes these “views” into 4 segments as detailed in the Figure 35.

In high-level terms, this will determine how attractive the Borrower is as a customer to the
supplier. This in turn will determine the level of willingness or reluctance the supplier will
exhibit in wanting to bid for work and the corresponding level of effort the supplier will make
in meeting the Borrower’s requirements. This is a tool that helps determine the extent that
the Borrower can influence a market, through its procurement approach, to achieve the PDOs
and Procurement Objectives (see Section VII of the PPSD Guidance).

The outcome of this analysis should allow a Borrower to establish the factors listed below and
design a procurement approach to maximize market interest, and actual participation in the
procurement:

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• What changes the Borrower needs to make to be more attractive to the market?
• How to motivate the market to bid and provide a good solution to meet the Borrower’s
requirements?
• How to engage with the market to optimise the level of supplier participation in a
bidding process?

Supplier preferencing considers two dimensions in assessing the attractiveness of a Borrower

and the business (contracts) it has to offer. These are the:

• Value of the business to the supplier; and

• Overall attractiveness of the business to the supplier.

The first dimension is the value of the Borrower’s business (potential contracts) to the supplier
as a proportion of the supplier’s turnover. Turnover information can be obtained from a
supplier’s annual accounts or from other sources such as market analysis reports. Normally,
the higher the proportion, the more motivated the supplier will be to bid for the contracts.

The second dimension is how attractive the Borrower’s business is to a supplier. Normally, the
higher the attractiveness, the more motivated the supplier will be to bid for the contract.

Using these two dimensions, the analysis can be placed into a Supplier Preferencing matrix by
simply classifying attractiveness and relative business value as low or high on the basis of
Figure 35.

Figure 35 – Supplier Preferencing Matrix

Again, the value of a contract does not in itself make a procurement or a Borrower attractive
to a potential supplier. Rather, the whole package of value, coupled with Borrower behavior

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informs how the supplier is likely to react. The ideal classification is that potential suppliers
will see Borrowers as good customers that they already treat as “core” or that that they would
like to grow the relative value of the account through “development”. Unfortunately, some
suppliers may see the Borrower as a “nuisance” to be avoided due to high costs of doing
business, or as someone that can be “exploited” over the short term. Truthfully understanding
this dynamic, and how it can be changed to get the right, motivated supplier is critical in
ensuring a successful procurement result.

A. Borrower Business Attractiveness

Attractiveness is determined using a number of criteria. These include payment record, ease
of doing business with the Borrower, compatibility with the supplier’s business strategy, any
cultural affinities that may exist between the supplier and the Borrower and levels of trust,
and the Borrower’s business development potential and the perceived image to the supplier of
being associated with the Borrower or a specific Project.

It is equally important to consider both what makes a Borrower both attractive and
unattractive and this gives a clear indication on what the Barrower will need to do to increase
overall attractiveness. Criteria to consider are:

1. Attractive Characteristics
Profitability;
In-country security;
Stable/predictable government;
Good forward planning;
Manageable risks;
Opportunities for additional business;
Effective communication and information sharing;
Cultural fit and understanding;
A good ‘reference’ Project;
Stable and reliable payment;
Low levels of bureaucracy;
Easy to service from an account or contract management perspective;
Support from the World Bank;
A good transparent complaints handling mechanism.

2. Unattractive Characteristics
High levels of bureaucracy;
Reputation for onerous, lengthy, or expensive procurement processes;
Poor planning;

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Slow, erratic, or uncertain payment;

Uncertain or unmanageable risks;
Security concerns;
Low profitability - demanding contracts with low margins;
Onerous terms and conditions;
Turnover of personnel leading to dysfunctional behaviour;
Do not keep their word;
Poor supply market capability;
Immature supply chains;
Logistically difficult to service;
Suppliers not allowed to get it right through lack of information sharing; and / or
Low levels of support from the World Bank.

It is important to recognize that it is not only a supplier’s capability and capacity to deliver the
Borrower’s requirements that delivers successful Projects, but also the supplier’s motivation
and willingness to deliver what is needed to meet the requirements. This is often harder to
determine, but through the use of market engagement and carefully worded questions in
qualification and / or bid and proposal documents, it is possible to validate, or challenge, the
findings of supplier preferencing. Equally important, is that supplier preferencing should help
the Borrower put in place a plan of action to improve its general attractiveness to market and
operationalize this plan throughout the procurement approach through careful design and
planning.

By applying the Supplier Preferencing model and determining which quadrant is applicable to
a Borrower, it is possible to identify the typical behaviors a supplier may exhibit when doing
business with that Borrower.

Equally, this classification is particularly helpful in identifying risk and also which suppliers
within a market should and should not be targeted. As mentioned above, these conclusions
need to be covered in the market engagement plan, any qualification exercise, supplier
selection, bid evaluation strategy, and risk management plan.

Figure 36 summaries the typical action suppliers will take depending upon their classification
of a Borrower. Beneath this table is a description of actions by classification type.

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Figure
Figure 36 – Supplier Behaviours by Supplier Preferencing Quadrant

B. Supplier Classification

1. Development
Borrowers that are considered Development will be ranked highly in the supplier’s list of
priorities, as the Borrower will be considered as worth investing time and effort in. A Borrower
will be seen as attractive and while the value of business is relatively low, suppliers will be keen
to win new contracts and make sure current contracts are operating effectively. The Borrower
will be characterized as:

• Having potential;
• Highly sought after; or
• Worth working hard for to exceed Borrower expectations.

For this Borrower classification, the supplier is likely to offer very good service and show
considerable interest in resolving any issues. Correspondingly, Borrowers should actively
encourage receiving bids from such suppliers. Bids and any subsequent contracts are likely to
be very competitively priced, with exceptional service levels, as the supplier will be seeking to
nurture the Borrower to secure future bidding opportunities.

2. Core
Borrowers that are considered as Core are highly valued by suppliers both in terms of existing
contracts but also future opportunities. This is based upon the current level of business that
the Borrower provides and also the Borrower’s long-term potential for further business.

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Suppliers will invest significant effort to retain the current business and as such the Borrower
can expect:

• To be treated as an important customer;

• To have a beneficial relationship that drives value for both the Borrower and supplier;
• To receive a high level of service and response as the supplier will want to retain and
expand the business;
• The supplier to attempt to increase profitability slowly, while sharing the benefits with
the Borrower; or
• Suppliers to be receptive to ‘partnerships’.

Identifying the value to the Borrower of working with suppliers who behave in this manner is
critical in successful contracts and Projects. Therefore, consideration of these factors should
be at both supplier qualification and bid evaluation stages.

Bid evaluation using rated criteria offers the best opportunity for Borrowers to identify and
attribute value to suppliers and bids that offer these benefits. It will of course be important
to undertake the necessary due diligence to ensure the supplier will actually operate in this
manner, because suppliers often bid exhibiting the factors in Core, but then revert to behaviors
in Nuisance and Exploitable during delivery.

3. Nuisance
Borrowers that are considered Nuisance will be given minimum attention and the supplier is
likely to seek to withdraw from any current contracts and not pursue any new bidding
opportunities. Suppliers will rank a Borrower as very low in its list of priorities as the view of
the Borrower will be typically characterized as:

• Little profit to be made;

• Difficult and/or expensive to service; and / or
• Poor at paying bills.

As a result of a Borrower being considered Nuisance, the supplier is likely to offer poor service
and show very little interest in resolving any delivery, quality, or contractual issues.
Correspondingly Borrowers should be very cautious about receiving bids from such a supplier
and should also consider whether they should try and exit any existing contracts.

4. Exploitable
Borrowers that are considered as Exploitable will be ranked highly by suppliers due to the value
of business, but the supplier will seek short-term advantage from what the supplier will
perceive to be a position of strength.

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As a result of the Borrower being viewed as unattractive, suppliers will seek to maintain the
business as long as it does not involve any particular effort for them. The converse may also
occur, where effort is applied by the supplier, it seeks to exploit the Borrower through raising
prices on existing contracts or submitting bids with higher prices which if they win will
continue the pattern of increasing prices.

Suppliers may also seek to reduce their own costs through reducing the costs of serving the
Borrower. Price increases can occur beyond just straightforward price increases, Borrowers
can anticipate requests for contract variations for volume increases, extension of time,
unforeseen circumstances, etc.

Working with these suppliers will be a real challenge for the Borrower, so considerable effort
will need to be placed into contract management. However, the situation can be recovered if
the Borrower is able to identify why the supplier sees them as unattractive and then seeks to
address these issues. Issues can often be traced to low profitability and late payment.

Suppliers will be prepared to risk losing the Borrowers business. Suppliers and contracts will
need to be carefully managed and contingency plans may be needed to deal with the risk of a
supplier withdrawing from contracts.

6. Supply Positioning and Supply Preferencing

Aligning the needs of the Borrower and the likely behaviors of suppliers who may bid for World
Bank financed Projects is one of the more fundamental parts of the procurement approach
design.

As described earlier in Section IV of the PPSD Guidance, Supply Positioning is a procurement

tool that is used to assess the criticality of the goods, services, and works to the Borrower by
evaluating Project risk and value.

Supply Positioning also provides an overview of the procurement arrangements and mitigation
measures, segmented by the Supply Positioning categorization that a Borrower should
consider in developing its procurement approach. Figure 37 outlines the typical procurement
approaches applicable to each Supply Positioning segment.

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Figure 37 – Supply Positioning Indicative Procurement Approaches

Equally, through the use of Supplier Preferencing, it is possible to identify and describe the
typical approach suppliers will take to working with Borrowers based on the segmentation.
Figure 38 provides an overview of a supplier’s likely approach to the Borrower (as Customer)
in each category.

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Figure 38 – Supplier Preferencing Indicative Supplier Approaches

Comparing the findings of both Supplier Preferencing and Supply Positioning allows the
Borrower to identify and assess whether the typical procurement approach of a Borrower
based on the Supply Positioning segmentation is aligned with the typical approach of individual
suppliers as determined by Supplier Preferencing.

Where alignment between the Borrower and Supplier on the procurement is high, this is a good
indication that the indicative procurement approach is likely to deliver the expected benefits,
however, where there is no alignment this is equally a good indication that the indicative
procurement approach may not be effective in delivering the expected benefits.

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Figure 39 below outlines the different connotations of alignment with an indication of the
likely effectiveness of the indicative procurement approach.

Figure 39 – Alignment of Supply Positioning and Supplier Preferencing

The comparison of these two models is particularly helpful at identifying:

• Potential risks that need to be considered in developing a fit for purpose procurement
approach;
• Where Borrowers may need to change supplier perceptions of them by making changes
for example, asking the Bank to make direct payments to suppliers if the supplier if the
supplier is concerned about the Borrower’s track record in payment timeliness;
• Elements that need to be addressed in the Market Engagement Strategy to positively
position the market as to why a supplier should want to do business with the Borrower;
• Actions that need to be included within the risk register and contingency planning to
address highlighted risks;
• Potential areas that could be covered under pre-qualification to ensure that suppliers
with the best match to the Borrower are qualified to bid; and

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• Potential evaluation criteria to ensure that questions are included in the request for
bids or proposals that ensure suppliers provide information that allows the most
aligned suppliers to be identified.

Misalignment of Borrower and supplier approaches can be managed, as long as the reasons for
the misalignment are known and understood. Some of this information will come from the
results of the Supply Positioning and Supplier Preferencing comparison, but also from the
SWOT and PESTLE evaluations. Again, just because a contract is high value, does not make
the contract or indeed the Borrower necessarily attractive to the market. Figure 40 outlines
some of the typical responses to the misalignment that Borrowers can design into their
procurement approach to manage the risks of misalignment.

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Figure 40 - Typical Procurement Approaches Based on the Alignment of Supply Positioning and Supplier
Preferencing

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7. Supply Chain and Value Chain Analysis

A supply chain comprises of the tiered network of suppliers involved in producing, handling or
distributing goods, service, and works from raw materials through final delivery and usage and
disposal. It maps the flow and movement of goods and services from their source to final
destination. A Borrower will buy goods and services from many suppliers, each of which
comprises a supply chain in its own right. The upstream supply chains extend from the
Borrower to the suppliers and their supply chains back to the raw material, while the
downstream supply chain extends from the Borrower to the final destination, usage and
disposal of the goods, services, and works. Figure 41 illustrates a simple supply chain map.
Figure 41 – Supply Chain Map

Mapping the supply chain is a useful tool for identifying potential risks to the Borrower that
may occur upstream or downstream from the supplier. Typically the longer the supply chain,
the greater the risk to delivery as the supplier will have less control in managing each stage or
supplier within the overall supply chain. Another way of expressing this is that each step in
the supply chain creates a dependency that is not in the direct control of either the Borrower
or the contracted supplier.

There are a number of sources of information that can help the Borrower map supply chains.
The starting point is desk-based research through the use market analysis reports, searches
on the internet and specialist industry magazines. Other sources include previous supplier bid
or proposal submissions.

Borrowers and the Bank also have technical specialists who have a thorough understanding of
both markets and suppliers within them.

Finally, the most effective way is to go out and undertake market engagement and ask
suppliers or their industry representatives’ questions about how supply chains operate in a
market or a region.

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Using this information, the Borrower should be able to map and identifying each step and
dependency in a supply chain and understand whether there are any inherent risks in how the
supply chain operates.

Undertaking this type of risk assessment at each stage of a supply chain will allow Borrower’s
to identify individual mitigation measures that need to be considered in designing the
procurement approach. For example, these measures can range from not allowing sub-
contractors to be used by the supplier or letting multiple contracts to manage risks associated
with shortages of supply.

The second purpose of supply chain mapping is termed value chain analysis. This makes an
assessment of whether each step in the supply chain adds value or could be considered
unnecessary by not adding value, or worse, creating greater risk. In both of these instances,
this leads to unnecessary cost thereby creating inefficiency. The procurement approach
should be designed to consider how these inefficient activities could be reduced or eliminated.

For example, typically procurement approaches focus primarily on contracting with the
supplier at the end of the supply chain. Supply chain analysis encourages consideration of
whether there is a more appropriate procurement approach that may involve contracting with
multiple suppliers in the supply chain, especially if the analysis identifies stages in the supply
chain that add no value and/or create increased risk. This type of procurement approach may
allow complete stages in the supply chain to be removed.

This combined supply chain and value chain analysis is another tool that focuses the
procurement approach on reducing threats (risks) and taking advantages of opportunities
(reduction or elimination of non-value adding activities).

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Annex III. Specifications

Annex III – Specifications

1. Specification Writing
The Borrower should consider the following points when drafting and quality assuring
specifications:

• Address the risks identified in the procurement risk assessment;

• Identify key deliverables based on the PDOs;
• Clearly state the requirements based on the PDOs;
• Consider future needs, especially where the contract, Project delivery, or asset
operation is spread over a number of years;
• Use plain language;
• Be technically accurate;
• Be easy to read;
• Contain clear timescales;
• Set SMART performance criteria;
• Use appropriate standards where they exist;
• Reflect whole-life costs, if appropriate;
• Include health and safety considerations; and
• Provide flexibility for subsequent requirements.
Equally, when drafting specifications avoid:

• Breaching copyright or propriety rights;

• Excluding areas of risk that are best addressed in the specification;
• Using trade names;
• Using brand names;
• Excluding site information where it is critical that the supplier is aware of health and
safety implication, access arrangements, security arrangements, etc.;
• Using needless acronyms or technical language;
• Discriminating on the basis of nation, state, or region;
• Being ambiguous; and
• Being biased towards any particular supplier, brand, or country.

It should be noted that the type of specification used will determine the ultimate selection of
the SPDs for goods, works, and services, with the exception of consulting services.

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Conformance specifications are used with Request for Bids, while performance specifications
are used with the Request for Proposals (which includes both Competitive Dialogue and PPP).

Conformance specifications are normally evaluated on the basis of lowest conforming price,
while performance specifications are normally evaluated on rated criteria.

2. Writing additional Sustainable Procurement Requirements into

Specifications
Additional Sustainability requirements beyond those required by the bank may arise from one
of the following sources:

• Borrower’s policies on economic, social, and environmental sustainability such as

equality requirements, health and safety requirements, vehicle emission standards,
packaging, etc.; and / or
• Risks and opportunities identified through analysis of the market or the business and
operating environment. Sustainability risks and opportunities that are to be managed
through the procurement process may also be identified through the Environmental
and Social Impact Assessment (ESIA). The Bank requirements for ESIA are outlined in
Environmental and Social Standards 1 (ESS1).

Where possible, the additional sustainable procurement requirements should be evidence

based (i.e., with supporting data), be based on existing social-label criteria, eco-label criteria,
or on information collected from stakeholders in industry, civil society, and international
development agencies.

The Borrower may adopt international sustainability standards covering a wide range of
product and service groups, provided they are consistent with Bank’s Core Procurement
Principles.

Specifications should address additional specific sustainability requirements through either

precise conformance (technical) or performance specifications. Specific requirements should
set a sustainability standard that is to be met by suppliers or that allows suppliers to propose
their ideas, innovations, and approaches to managing the sustainability risk.

Additional Sustainable procurement requirements may specify materials to be used in

production and/or the method of production, packaging or service delivery. However, all
conformance (technical) specifications should bear a link to the subject matter of the contract,
and can only include those requirements that are related to the production of the goods,
works, general, or consulting services being procured. The Borrower should not require
production processes that are proprietary or otherwise only available to one supplier, or to
supplies in one country or region, unless such a requirement is justified to the satisfaction of
the Bank.

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3. Evaluation Criteria

A. Quality - Rated Criteria for assessing Quality

Rated type criteria, refers to criteria that are evaluated on merit points as they cannot be fully
assessed in monetary terms.

The merit points are assigned based on the degree by which the proposal meets or exceeds the
requirements detailed in the bidding/request for proposals document.

The criteria can be mandatory rated type criteria, where it may lead to the rejection of a
proposal if the minimum or maximum requirements, as the case may be, are not reached. The
criteria can also be classified as desirable rated criteria, in which case there is no
minimum/maximum threshold that would trigger the rejection of a proposal. The merit points
in the rated criteria are awarded based on a ranking system that shall be fully disclosed in the
bidding/request for proposals document.

There are some limitations on where rated criteria can be used:

• In international competitive procurement, rated type evaluation criteria shall only be

used with RFPs.
• In national competitive procurement, rated type evaluation criteria and procedures
may be used with the prior agreement of the Bank.

B. Evaluating Sustainable
Sustainable Procurement
Evaluation criteria may require additional sustainable procurement technical competence to
be demonstrated beyond the banks requirements. In practical terms, this may require that
the bidder:

• Has previous experience in successfully executing contracts with similar requirements;

• Employs, or has access to, personnel with the required educational and professional
qualifications, practices and experience to deal with the sustainable procurement
elements of the contract;
• Owns, or has access to, the necessary technical equipment for environmental
protection; and / or
• Has the means to deliver on the sustainable procurement aspects of the contract.

For service and works contracts only, the Bank procurement procedures allow for
requirements, specifically at the selection stage, about the environmental management
measures that the supplier will be able to apply in performing the contract. This is restricted
to relevant circumstances, so if sustainable procurement management measures are not
relevant to the contract in question, the Borrower may not require the supplier to demonstrate
its ability to apply them.

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Sustainable procurement measures can serve to demonstrate the technical capacity for
contracts where the nature of the works justifies applying sustainable procurement
management measures or schemes during the performance of a contract. Those measures
must be directly linked to the performance of the contract.

Internationally recognized certification or accreditation schemes may be used to demonstrate

a supplier’s ability to apply environmental management measures. Such schemes may include
EN/ISO 14 001 or other systems, which conform to the relevant international standards on
certification and environmental management, may be recognized. Suppliers may also be able
to demonstrate that they apply equivalent sustainable management measures, even without
certification.

More information on Evaluation Criteria is available at [Link]/procurement.

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