Procurement Aspects of Introducing
ICT Solutions in Electoral Processes:
The Specific Case of Voter Registration Anne-Sofie Holm
Gerhard & Mette Bakken
Tbilisi, 9 September 2010
European Commission United Nations Development Programme
Introduction of the Operational Paper, rationale & scope
Unfold the complexity of introducing ICTs in Voter Registration processes, and its impact on procurement activities
Highlight some key challenges & lessons learned in operational & procurement planning, and budgeting for the Biometric Voter Registration processes
Objective
Introduces Electoral Procurement processes and planning, guiding principles, and challenges
Focuses on Costs of VR Processes, well-established budgets and risk assessments
Examines the increasingly Central Role of ICTs in elections
Studies ICTs in VR as one of the most crucial, expensive and expanding part of the electoral process
Addresses Specific Procurement Issues related to Biometric VR
Linkages between Civil and Voter Registration
Scope and Structure of the Paper
Staffing
Equipment
Office lease/maintenanceutilities
Warehousing
Voting Operations
and Election Day
Verification of
Results
Post-Election
Legal Legal FrameworkFramework
Running Running Costs of Costs of EMBEMB
Voter Registration
Electoral Campaign
Training and Education
ToT, venues, transport, equipment
Training of civic & voter educators
VR materials and services
Observers & accreditation
Party liaison/Media monitoring
Complaints mechanism
Polling station kits, Ballot boxes, voting screens, ink, lanterns, uniforms, polling station furniture
Embassy voting & out-of-country voting
Any procurement relating to the tabulation & communication of official results or to complaints and appeals?
Audits & evaluations
Upgrades, updates, training (i.e. BRIDGE) sust. development
The Electoral Cycle vs
the operationa
l & procurement cycle
consumables
IT equipment/ software/ website
Training
Security Costs
Uniforms
Travel
Conferences
Printing
Printing of manuals
Training of election officials
Materials/announcements (TV, radio, press)
Data processing, VR list & ID cards
Data Entry Centre, hardware, software
Ballot lottery, design, production, logistics
Polling Forms
Counting Centres
Call Centre/Website
Security
Hiring legal experts
Operational Planning starts with Policy and the Legal
Framework… Policy decisions Approved Legal Framework Division of roles and responsibilities Interaction with development partners/international community
Quality of original data, exploration of sustainable solutions (possible synergies)
Choice of technology and standards Ad hoc VR to permanent system Procurement of technological systems, e.g. digital registration kits,
data processing centers (central/regional level) Decision on Eligibility Methodology: staggered registration etc? Absentee voting & IDPs?
Create operational plan Create operational timeline Create budget Create procedures
What’s needed in a biometric voter registration process?
1. The Digital Mobile Registration Kit, possibly with the following components:1. Embedded computer with monitor, Keyboard, and mouse2. Digital Camera (webcam)3. Biometric extension with Finger print scanner and Signature pad4. Colour printer5. Registration software, pre-loaded6. Kit case incl. all components of the kit, and consumables (printer cartridges)7. Power source, generators/Solar Power kit 8. Technical and operational manuals and guidelines involving hardware and software9. On-going technical support
2. Trained registration staff (cascade training..?)
3. In country or out of country duplicate analysis (AFIS?)4. Production of Preliminary Voter Lists – Display5. Production of voter cards
6. Voter education material & campaign7. Observers & Candidate agents
How long How long to to progress progress from from here..?here..?
Specifications – can take months to draft and then agree on
INDICATIVE Timeline for Procurement of Biometric Kits –
5 ½ monthsTasks
Working Days
Technical Specifications and Services finalised and validated by all partners 01/12/2009
Technical specifications & services approved for the procurement process, alongside with launch of Expression of Interest/pre-qualification 10 days 01/12/2009 11/12/2009
Tendering period 30 days 14/12/2009 22/01/2010
Analysis and Technical Evaluation 6 days 25/01/2010 01/02/2010
Analysis and Financial Evaluation 2 days 01/02/2010 02/02/2010
Notification to suppliers, travelling 6 days 03/02/2010 10/02/2010
Validation testing 6 days 11/02/2010 18/02/2010
CAP/ACP committees 8 days 19/02/2010 02/03/2010
Negotiations and signing of contract 5 days 03/03/2010 09/03/2010 Indicative production of first batch , and development of simple software package, delivery of e.g.120 kits for training 30 days 10/03/2010 18/04/2010
Estimated prodcution and delivery of e.g. 3000 kits 50 days 10/03/2010 18/05/2010
VR Procurement – Risks and Challenges
Structural Arrangements in place • Independent EMB ?• Permanent EMB?• Human Resources• Procurement Structures
Supply Market Distortion• Political lobbying lead to prejudicial outcome of the tender process.• Some commodities are very simple but limited specialized suppliers.
Inflexible deadlines• Often used by critical stakeholders as a pressure tool exerted on procurement means • Cause serious value for money predicaments e.g. need to airfreight, single source situation etc• Cause severe pressure on logistics and distribution
VR Procurement – Risks and Challenges
Incomplete or Late Technical Specs/ToR/Request for Assistance Technical Specs/ToR/Request for Assistance • Creates margin for error - remedy action limited • Creates ambiguity, a situation suppliers can manipulate• Limited qualified technical experts to develop solid specs• Standards are not applied • Testing is not applied
National Ownership, Capacity and Ownership, Capacity and InfrastructureInfrastructure • EMB not be fully in place or lack capacity, high staff turnover• Technical Solution or Technical Transfer• Checks and balances in place• Political, logistical, geographical, security challenges etc.Reputational Risk• EMB and donor community (perception vs. reality)
VR Procurement – Risks and Challenges
Unrealistic Expectations • By stakeholders on the Procurement Rules & Regulations to deliver • Ill-informed of the market response time
Cost of high-tech Solutions and Sustainability• Tremendous focus on highly advanced technology w/o infrastructure to support it• One time event with little synergies or thought into a wider institutional plan?• Total Costs of Ownership of biometric VR are extremely high• Disaster Recovery?
Insufficient Budgets• Lead to sub-optimal goods and services being purchased• Several ad hoc procurement exercises as patch work solution
Operational Planning Challenges
Inadequate time Inadequate assessment of appropriate technology and needs Inadequate and isolated budgets Inadequate technical specifications and lack of standards Lack of ability to integrate cross-cutting operational plans
Insufficient study of sustainability and operational costs Insufficient national ownership Lack of focus on transfer of knowledge Lack of focus on synergies
Ensure all above issues are available with opposite connotation…
Further Recommendations…
Seek advice early• Technical Advisory is available• Observe Standards developed in relevant domain • Examine the full implications of costs, operations and maintenance -
focus on sustainability and informed decisions• Integrate Pilot projects/ validation testing
Integrate procurement into project formulation• Include procurement input into project formulation (Strategy/Operations)• Create an independent role for a Procurement Expert & Technical Expert in
the team
Procurement tools• Establish detailed procurement plans and realistic timelines• Establish conditions for efficient procurement, accelerated delivery,
build economy of scale, ensure quality assurance (pre-qualifications)• Examine options for local vs. international procurement
Timely introduction of new technologies…
Thank you