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

anne-sofie.holm@undp.org