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Slide 1
Welcome and Introductions
Slide 2
L5-14 Contracting in the Public Sector
Session One
Slide 3
Learning Outcomes
1.1 Evaluate potential risks and establish appropriate procedures to manage risks:
Types of risk:
• Political eg reputational, loss of democratic oversight by elected representatives
• Limited competition in the market
• Failure to meet performance standards
• Change of law
• Security of supply, contingency planning, stock holding and alternative sources of supply
• Quality, project or technology failure
• Supplier insolvency, monitoring and guarantees
• Security, theft and damage
• Fraud, accounting & payment exposures, conflicts of interest, purchasing ethics and codes of
conduct
• Contractual failure, consequential loss and provision for remedies
Slide 4
Overview of the key themes and learning outcomes
UNIT CHARACTERISTICS
Slide 5
Overview of the key themes and learning outcomes
UNIT CHARACTERISTICS
Markets
Transparency
Competition
Relationships, and,
Trust
Slide 6
Overview of the key themes and learning outcomes
UNIT CHARACTERISTICS
Slide 7
Overview of the key themes and learning outcomes
LEARNING OUTCOMES
There are four sections to this Unit, each apportioned a percentage of the total
time and focus for the whole unit.
Slide 8
Definitions of Risk and Risk Management
Slide 9
Common Risks
Quality
Environmental Pollution
Health & Safety
Fire
Computer failure
Marketing risk
Fraud
Security
International Trading
Political risk
Slide 10
Internal Risks
Quality
Accidents
Fire
Security
Fraud
IT
Marketing
Buildings
Telecoms
Human
Slide 11
External Risks
Political
Economical
Social
Technological
Environmental
Legal
Slide 12
Vulnerability in the Supply Chain
Reputation
Unreliability
Overstocking
Price increases
Conflicts of Interest
Corruption
Financial failure
Slide 13
Types of Risk – Supply Market Risks
4. Supplier insolvency
Slide 14
Types of Risk - Political
3. National emergencies
Slide 15
Types of Risk – Contractual Risks
1. Change of law
3. Limit of liability
7. Extent of sub-contracting
Slide 16
Types of Risk – Financial Risks
3. Budget constraints
8. Fraudulent activity
Slide 17
Types of Risk – Buying Organisation Risks
Slide 18
Types of Risk – Post Contract Award Risks
3. Acceptance testing
6. Stakeholders involvement
Slide 19
Types of Risk – Other Risks
Slide 20
Procedures to Manage Risks
• Creation, and,
• Subsequent maintenance of a risk register/log
Slide 21
Risk Register
1. Risk number
2. Risk type
3. Author-who raised the risk
4. Date identified
5. Date last updated
6. Description
7. Likelihood of occurrence
8. Interdependence with other sources of risk
9. Expected impact
10. Bearer of risk
11. Countermeasure (risk mitigation strategy)
12. Risk status and risk action status e.g High, Medium or Low
Slide 22
Using Risk Registers
Slide 23
Risk Register (HR Example)
Annual report on
completion of training
Slide 24
Risk Register (Strategic Objective)
Slide 25
Risk Register (DoH)
Slide 26
Student Question
Slide 27
L5-14 Contracting in the Public Sector
Session Two
Slide 28
Procurement Structures and Service Provision
1.2 Assess the relative merits of internal, external or mixed provision of the purpose
of the contract:
• arguments for and against internal, external or mixed provision by public, private
and third sector providers eg voluntary bodies, charities
• policy on contracting out, competitive tendering, use of private finance, private
and voluntary sector expertise
• models for determining the appropriate governance arrangements eg transaction
cost economics, relational competence analysis
1.3 Identify the correct level of approval for the purchase and obtain authority to
proceed:
• official (eg by grade, by department (Purchasing, Finance etc)), legal and political (eg Council Committee,
ministerial) approval levels in accordance with established procurement and ethical procedures
• relevance of approval procedures under Gateway reviews or programme and project management techniques
such
as PRINCE2 and Managing Successful Programmes (MSP)
• internal and external stakeholders with whom consultation is necessary
1.4 Plan that procurement staff with expertise appropriate for the requirement are involved
at an early stage:
• risks of not involving procurement at an early stage
• procurement knowledge and competences appropriate for various requirements
• communication skills appropriate for interacting with more senior staff and staff from different professional and
technical backgrounds
Slide 29
Historical Key Drivers
2. Best Value
3. Byatt Report
5. Centre’s of excellence
Slide 30
Current Key Drivers
3. Third Sector
4. CO2 emissions
Slide 31
The Gershon Review
Sir Peter Gershon's review of public sector efficiency, set out the scope
for further efficiencies within the public sector's;
1. Back office
2. Procurement
3. Transaction service
4. Policy-making
Slide 32
The Gershon Review
Slide 33
Different Models of Service Provision
1. Internal provision
2. External provision
3. Mixed provision
Slide 34
Use of External Resources
Slide 35
Reasons to use External Resources
Slide 36
Reasons to use Internal Resources
Slide 37
Cost Benefit Analysis
Slide 38
Cost Benefit Analysis (Example)
Accurate Cost Benefit Analysis means that once you have collected
ALL the positive and negative factors and have quantified them you
can put them together into an accurate cost benefit analysis.
Some people like to total up all the positive factors (benefits), total up
all the negative factors (costs), and find the difference between the
two.
Slide 39
Cost Benefit Analysis (Example)
Slide 40
Cost Benefit Analysis (Example)
The cost benefit analysis clearly shows the purchase of the stamping
machine is justified.
The machine will save your company over £15,000 per month, almost
£190,000 a year.
Slide 41
Investment Appraisal Techniques
The ‘Green Book’ encourages a more thorough, long-term and analytically robust
approach to appraisal and evaluation. Exacting detail can be found at
http://greenbook.treasury.gov.uk/
Slide 42
Investment Appraisal Techniques
Slide 43
Investment Appraisal Techniques
In the public sector there may be other benefits accruing from a project
that demand a wider investment appraisal technique.
Examples of the Public sector’s different drivers across local and central
Government, defence, emergency and health services are:
Slide 44
Investment Appraisal Techniques
• Better healthcare;
• Reducing poverty.
Slide 45
Investment Appraisal Techniques
Slide 46
Investment Appraisal Techniques
When evaluating projects, whether or not they are competing for that
scarce resource, capital, there is need to consider the cost of capital, the
asset’s residual value, the cash flows and timings emanating from the
project, taxation including capital allowances, grants, risk and cost
benefit.
Slide 47
Investment Appraisal (Three Principal Methods)
Payback period
Slide 48
Payback Period
For example, if the capital cost is £20,000 and the annual net cashflows
from this investment are £4,000, the payback period is 5 years.
If the annual payments were uneven i.e. more or less over the payback
period the investment appraisal would conclude a longer or shorter period
to return the payment.
Slide 49
Payback Period
Its disadvantages are that it ignores what happens beyond the payback
period, the time value of money and is concerned with cost recovery not
profitability.
Slide 50
Accounting rate of return (“ARR”)
Taking the same example, with a capital cost of £20,000 and an annual
profit of £2,000 (net cashflows less straight line depreciation over 10
years), the ARR is 10 per cent.
The advantages of the ARR are again its simplicity and its concern with
profitability, however it still has the disadvantage of ignoring the time
value of money and also is dependent on the depreciation policy adopted
by the business.
This method is less appropriate for the public sector than the private sector.
Slide 51
Discounted Cash flow (DCF)
DCF focuses on the time value of money, £1 is worth more today than £1
in the future.
The reason being that it could be invested and make a return (even in
times of low interest, so long as interest rates are positive).
So, for example the present value of £1, at a discount rate of 10% in 3
years. £1/(1.10) 3 = £0.75
Slide 52
Discounted Cashflow (DCF and NPV)
Slide 53
Net Present Value (NPV)
The annual cash flows are discounted and totalled and then the initial
capital cost of the project is deducted.
The higher the NPV the more attractive is the investment in the project.
Slide 54
Internal Rate of Return (“IRR”)
The IRR or yield of a project is the rate of return at which the present
value of the net cash inflows equals the initial cost, which is the same as
the discount rate which produces a NPV of zero.
For an investment to be worthwhile the IRR must be greater than the cost
of capital.
The advantages of the discounting methods are that they are concerned
with profitability and the time value of money.
Slide 55
Internal Rate of Return (“IRR”)
Slide 56
Stages in a Public Sector Investment Appraisal
The process is based on well proven techniques that lead to more effective
delivery of benefits, together with more predictable costs and outcomes.
Slide 57
Student Question
Slide 58
L5-14 Contracting in the Public Sector
Session Three
Slide 59
Learning Outcomes
1.5 Differentiate the appropriate funding mechanisms, whether conventional, PPP/ PFI or mixed:
• advantages and disadvantages of various funding mechanisms eg conventional (from departmental
budgets), privately financed eg bond issue, PFI contract
• whole life costing
• investment appraisal techniques
2.1 Evaluate the supply market for changes to suppliers, technology, the nature and extent of
competition:
• number, size, location, socio-economic aspects (SMEs, minority owned etc) of suppliers
• technological changes eg new processes, equipment, intellectual capital
• Porter’s 5 forces model: barriers to entry, threat of substitutes, power of suppliers, power of buyers,
intensity of rivalry and strategies to increase power of buyers
2.2 Evaluate opportunities for aggregation of requirements and cooperative procurement paying
due attention to the optimum geographical and sectoral scope of the contract:
• other buying organisations with similar requirements by sector, region, size etc
• EU and UK rules on aggregation and joining previously let frameworks or contracts
• nature of the client’s requirement: standard; some added/amended features; tailored for client
• optimum geographical scope of sourcing and delivery: local, regional, national, European Economic
Area; global
Slide 60
Types of Risk – Supply Market Risks
4. Supplier insolvency
Slide 61
Relationship Spectrum of Buyers and Sellers
(Diagram from workbook by Mike Fogg)
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Slide 62
Supply Positioning Model
(Diagram from workbook by Mike Fogg)
Strategic Strategic
HIGH Security Critical
Risk, vulnerability, exposure
Tactical Tactical
Acquisition profit
LOW HIGH
Relative cost
Slide 63
The Purchasing Process and its stakeholders
(Manufacturing environment)
Inventory Human
Quality Suppliers
Management Resources
Warehousing
Information
Production And
Technology
Distribution
Sales and
Maintenance
Marketing
(Diagram from workbook by Mike Fogg)
Slide
NB: The hierarchical sequence of the business functions in this chart is not meant to give prominence to one 64
function over another, it is simply a convenient way of grouping stakeholders together in this environement
The Purchasing Process and its stakeholders
(A County Council in the UK
)
Cabinet and Council tax Users of services Office of Local Local Strategic
led member payers and to the community
, Government government Partnership,
procurement voters e.g., Commerce officers, e.g., e.g.,
champion. IT, finance, o Health
(Scrutiny of o Children and internal audit o Police
expenditure) Regional parents o Business
o Householders External Interests
centre of
o Senior suppliers o Voluntary
excellence
citizens sector
o Library users
Elected
o Motorists
Councillors Special Other Local
o Sports and
interest groups Purchasing Partnerships,
leisure users Trade Unions
Consortia e.g.,
Central o Waste
Government o Children
e.g., (Office of Local and young
businesses Other Local Purchasing
deputy Prime persons
Authorities team
Minister)
Regional
The Chamber European Internal
External Audit Development
of Commerce Union Suppliers(Diagram from workbook by Mike Fogg)
agencies
NB: The hierarchical sequence of the business functions in this chart is not meant to give prominence to one function over
another, it is simply a convenient way of grouping stakeholders together in this environment
. The author would like to thank
Fiona Holbourn of Leicestershire County Council and Ken May of ESPO for their assistance in refining this diagram Slide 65
Risk Assessment
(Table adapted from workbook by Mike Fogg)
Risk 2 2 5 10
Risk3 2 5 10
Risk4 1 3 3
Risk5 2 4 8
Total 4o
Slide 66
Selecting Strategic Suppliers
Compatibility
Slide 67
Assessing Suppliers
(Diagram from workbook by Mike Fogg)
Assessing
suppliers
Slide 68
Supplier Management
1. Communication improvement
2. Better trust
3. Less bureaucracy
4. Single sourcing
Slide 69
Aggregation of Requirements
The Gershon Review has also made a significant impact and shared
services such as, printing, back office, HR, shared services etc.
Slide 70
Student Question
Slide 71
L5-14 Contracting in the Public Sector
Session Four
Slide 72
Learning Outcomes
2.0 Analyse the scope and nature of the contract (30%)
2.3 Propose the opportunities for sustainable procurement, and the need to enhance supply to
the public sector by SMEs and minority owned businesses:
• policy on and sources of sustainability: ‘green’ procurement including energy efficiency, recycling,
biodegradability; ethical procurement
• mechanisms and EU/UK rules on enhancing access by SMEs and minority owned businesses:
splitting large contracts eg geographically, by category; preference schemes; outreach eg meet the
buyer, Internet, multilingual documentation
2.4 Plan the appropriate duration of the contract and the optimum number of suppliers in
relation to the nature of the requirement, the supply market and the opportunities for
aggregation:
• factors impacting on contract duration eg duration of the requirement; market characteristics eg
technological change, stability/volatility of price, capacity, storage; EU/UK rules and policy; supplier
relationships
• factors affecting the number of suppliers eg capacity of the market; impact on competition; range of
products/services included; ease of managing the supply chain; number and location of customers
and
delivery points; scope for enhancing access by SMEs and minority owned businesses; risk of too few
suppliers
2.5 Manage the specification by involving clients, potential suppliers, financial and technical
experts at an early stage:
• advantages and disadvantages of performance, functional and technical specifications for various
products, services, projects
• policy and EU/UK rules on involving potential suppliers in specification
• types of financial and technical expertise for various requirements and their sources eg in-house,
other Slide 73
government body, private consultancy
Sustainability Policy
Slide 74
Corporate Social Responsibility Themes
Green options
Stakeholder engagement
Slide 75
Sustainability Policy
Slide 76
Fraud and Ethical Conduct
Assets –
Valuable?
Commercial secrets
Staff -
Left unsupervised with finance or assets?
Addictions or heavy financial commitments?
Close links with suppliers or customers?
Accounts employees never taking holidays
Systems –
Record keeping
Written procedures
Fraud audits undertaken?
Slide 77
Specification Development
Stakeholder engagement
Standardized materials
Use of Kraljic
Slide 78
Student Question
Slide 79
L5-14 Contracting in the Public Sector
Session Five
Slide 80
Learning Outcomes
2.6 Discuss the intended costs and benefits from the contract and incorporate targets,
incentives, monitoring and reporting mechanisms for their realisation:
• factors affecting sharing of benefits and costs from the contract eg nature of the
requirement eg strategic, bottleneck, non-critical, leverage; nature of the relationship; cost of
provision; nature and allocation of risks
• opportunities for incentivisation through targets appropriate for the requirement and the
relationship
• factors affecting allocation of responsibility for monitoring and reporting between client and
contractor
Slide 81
The Key Principles of Contract Formation
Consideration
Slide 82
The Tendering Process
Slide 83
Project Management
Scope
Quality
Cost Time
Slide 84
Teams
Temporary teams
Cross-functional teams
Top management teams
Self-directed teams
Slide 85
Specification Development
Slide 86
Student Question
Slide 87
L5-14 Contracting in the Public Sector
Session Six
Slide 88
Learning Outcomes
3.0 Manage the supplier selection process through the application of appropriate rules
and procedures (15%)
3.1 Plan at an early stage the selection procedures appropriate to the requirement with reference to
EU and national rules, in particular the use of competitive dialogue, frameworks and the opportunities
for e-tendering:
3.2 Manage the tendering process transparently through explicit identification of selection criteria
and weights, appropriate advertising, and the provision of documentation which informs suppliers
clearly of the requirement without overburdening them:
Slide 90
E-procurement
E-tendering
E-ordering
E-payments
E-marketplace
E-sourcing
EDI
Bar Coding
Slide 91
Private Finance Initiative (PFI)
There are insufficient public funds to make this happen (without high risk or
impact on taxes etc)
Design, build, fund and run programmes, commissioning the private sector
will allow for this to happen at reasonable payment intervals
Slide 92
Private Finance Initiative (PFI)
Advantages
Provides a resource by an affordable scheme
Uses effectively private sector expertise
Governance procedures apply
Funding is based upon whole life costing issues
Disadvantages
Can create very high whole life costs
Can create a long convoluted procurement process
Slide 93
Public Sector Funding Mechanisms
Local tax
Selling services
Loans
Asset sales
Slide 94
Supplier Selection Process
CSR
Slide 95
Competitive Dialogue Procedure
Guidance about the procedure has been published by both the OGC and
the European Commission and individual guidance in Departments, Local
Authorities etc has been widespread
Slide 96
Competitive Dialogue Procedure
Slide 97
Competitive Dialogue (Advantages)
Slide 98
Competitive Dialogue (Advantages)
•Permits the graduated development of essential documents eg, the contract and
cost model
•Permits innovative solutions to develop with the active input of the contracting
authority
Slide 99
Competitive Dialogue (Disadvantages)
•It is a new, unfamiliar and unproven procedure, thereby carrying the risk of
being ineffective
•The solution will be developed with bidders during the dialogue and providing
sufficient time is permitted exhaustive iterations can take
place
•No negotiation is possible post closure of the dialogue, the bids can only be
clarified, specified or fine tuned
Slide 100
Competitive Dialogue (Disadvantages)
Slide 101
Negotiated Procedure (Advantages)
It is a tried and tested procedure giving both sides the confidence in its
application
Both sides costs are controlled and contained within well defined
parameters
Slide 102
Negotiated Procedure (Advantages)
There is a well documented set of case law to clarify the finer points of the
procedure
Can be used where the need is not particularly complex but where
negotiation is required
Slide 103
Negotiated Procedure (Disadvantages)
EC has indicated that it will closely examine procurements that still follow
the negotiated procedure
Slide 104
Negotiated Procedure (Disadvantages)
Slide 105
Student Question
Slide 106
L5-14 Contracting in the Public Sector
Session Seven
Slide 107
Learning Outcomes
3.3 Ensure that tenders are evaluated in accordance with procedures using the
advertised selection criteria and weights, and that successful and unsuccessful
suppliers are provided with the opportunity for debriefing:
• relevance of selection criteria for various requirements eg products, services, projects and
policies eg access of SMEs and minority businesses, through life capability; use of
procurement for socio-economic purposes; sustainable Procurement
Slide 108
Supply Market Evaluation
Slide 109
Porter’s Value Chain
Slide 110
Porter’s 5 Forces
New
Entrants
Threat of
New Entrants Bargaining
Power of
Industry Buyers
Competitors
Buyers
Suppliers Intensity of
Rivalry
Bargaining
Power of Threat of
Suppliers Substitutes
M.E.Porter:
Competitive Substitutes
Strategy: 1980
Slide 111
Stakeholders
Slide 112
Evaluation and Weighting Criteria
Slide 113
EU Rules and SME’s
Slide 114
The Benefits of Aggregation
Slide 115
Student Question
Slide 116
L5-14 Contracting in the Public Sector
Session Eight
Slide 117
Learning Outcomes
4.0 Develop and maintain positive relationships with suppliers to realise benefits
from the contract: (30%)
4.1 Evaluate the relationship continuum from arms length to close and collaborative and
deploy strategies appropriate to the relationship and the requirement:
4.2 Evaluate the costs and benefits of developing partnership and relationships based on
mutual trust with suppliers:
• potential costs of developing partnership: ‘hard’ eg systems alignment, senior management and staff
time, relocation; ‘soft’ eg cultural change, building trust, joint activities
Slide 118
Appropriate Contract Duration
3. SME implications
Slide 119
The Specification Process
Slide 120
Kraljic
Slide 121
Supplier Perception Matrix
Slide 122
Relationship Spectrum of Buyers and Sellers
(Diagram from workbook by Mike Fogg)
RELATIONSHIP SPECTRUM
Distant Closer
Slide 123
Relationship Spectrum of Buyers and Sellers
(Diagram from workbook by Mike Fogg)
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Slide 124
(6) Supply Positioning Analysis
(Diagram from workbook by Mike Fogg)
Supply
Positioning
A tool to identify strategies and tactics for goods and services purchased
, including consideration of
Purchasing
Controlling price Inventory People allocation Contracting
processes and Time Allocation
and cost Management and skills strategies
measurement
Slide 125
Using the Supply Positioning Model
(Diagram from workbook by Mike Fogg)
x x
x
x
x
Slide 126
Supply Positioning Model
(Diagram from workbook by Mike Fogg)
Strategic Strategic
HIGH Security Critical
Risk, vulnerability, exposure
Tactical Tactical
Acquisition profit
LOW HIGH
Relative cost
Slide 127
Supplier Preferencing Model
(Paul Steele and Brian Court, published in Profitable Purchasing
Strategies, McGraw Hill)
Development Core
HIGH
Attractiveness of customer
Nuisance Exploitable
LOW HIGH
Relative value of the account
Slide 128
Marketing Management Matrix
(Paul Steele and Brian Court, published in Profitable Purchasing
Strategies, McGraw Hill)
Strategic Strategic
Security Critical
Tactical Tactical
Acquisition Profit
Slide 129
Tactical Relationships
(Diagram from workbook by Mike Fogg)
Strategic Strategic
Security Critical
Tactical Tactical
Acquisition Profit
Development Core Development Core
Slide 130
Strategic Relationships
Outsourcing
Strategic Alliance
Partnership
Co-destiny
Slide 131
Cost and Benefit Analysis
1. Allocation of risks
2. Dependencies
3. Nature of relationships
Slide 132
Student Question
Slide 133
L5-14 Contracting in the Public Sector
Session Nine
Slide 134
Learning Outcomes
4.3 Develop a shared understanding of deliverables expected from the contract based upon
cost down initiatives and benefit sharing:
4.4 Plan and manage the supply relationship through the collation, analysis and
dissemination of data to enhance current and future supply market intelligence:
Slide 135
Contract Targets and Incentives
Are we paying the right price and demonstrating VFM? This can be
demonstrated by;
3. Tendering exercises
6. Trade associations
Slide 136
Supplier Selection Procedures
1. EU Notices
2. PQQ
Slide 137
Supplier Innovation and Benefits Sharing
Slide 138
Contract Variations and Change Controls
Variations and change controls will generally fall into two categories;
> Pre-contract
> Post contract
> Managed
> Transparent
> Fair
> Hold a clear audit trail
Slide 139
Reasons for Variations and Changes
Pre-contract
A mistake has been found on tenders or PQQ that requires open
and communicated variation to bidders
Slide 140
Reasons for Variations and Changes
Post-contract
A mistake has been found in the contract, items not accounted for
requiring inclusion in the contract
Slide 141
Joint Governance
Issues
ALMO arrangement
Slide 142
Managing Markets
Issues
Collaboration
VFM
Slide 143
Student Question
Slide 144
END
Slide 145