Overview of UNICEF Procurement Processes · Overview of UNICEF Procurement Processes Industry...

Overview of UNICEF Procurement

Processes

Industry Consultation

UNICEF Supply Division

Copenhagen 27th January 2012

UNICEF

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Content

Supply & Procurement Process Overview

Foundations to UNICEF Vaccine Procurement

Tendering Process

Tender Document and Proposals Review

Establishment and Management of LTAs

Summary and where to find additional information

Source: 2012 country forecasts received by UNIICEF

Immunization Supplies

Vaccines BCG , DTP, TT/Td/DT, Measles

containing, OPV, HepB, YF,

DTP-HepB, DTP-HepB/Hib,

DTP/Hib, Hib, MR, Meningitis,

MMR, PCV, RV IPV, etc.

Safe Injection equipment

Cold Chain Equipment

Vaccines Supplies: US$ 955 million 2.47

billion doses 2,105

shipments 2011

Source UNICEF Supply Division

Countries UNICEF

procures on behalf of

Full schedule

Partial schedule

UNICEF procures immunization supplies on behalf of 80-100

countries annually

Major funding flows for Vaccines procured by UNICEF

$0

$100,000,000

$200,000,000

$300,000,000

$400,000,000

$500,000,000

$600,000,000

$700,000,000

$800,000,000

$900,000,000

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

PROG PS

GAVI

48%

Procurement

Service

33%

UNICEF

GAVI falls under procurement services but is highlighted separately to show the overall portion of GAVI funded procurement

Source UNICEF Supply Division

Annual

Forecasting

Order

Placement Supplier Airport

Monitoring &

Reporting

Central Cold

Chain Storage District/Regional

Cold Chain Storage

Health

Centre Immunisation

Data

Analysis

Management of

the global forecasting

Exercise

-Forecast data

from 2003

-Provisional Plan

-Forecasting accuracy

reports

Data analysis

for effective supply

Planning

- Sharing

Price information

Vaccine/Device/

Cold chain Procurement

DB from 1997

Shipping management

for on-time delivery

Vaccine Arrival Report

Operational

Follow-ups

Procurement &

Technical guide

Capacity building for in-country logistics

Cold chain weight & volume calculator

Contracts and

suppliers

management

UNICEF Supply Division (Vaccine Center) main roles &

resources in the supply chain

UNICEF

Issues Formal

Tender

and Evaluates

Offers

Procurement Process Overview

Establishment of

Long Term

Arrangements

for supply of

vaccines for

multiple years

2-4

years

Placement of

orders

PO

PO PO

Manufacturer

shipments

Country

inspection

Invoice

payment

Vaccine

Arrival

Report

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Foundations to UNICEF Vaccine

Procurement

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UNICEF Vaccine Procurement Objectives

Vaccine Security:

Ensure an uninterrupted, sustainable supply of

affordable, quality vaccine

Compliance to UNICEF Vaccine Procurement Principles

Compliance to UNICEF Financial Rules and Regulations

Compliance to Public Procurement Principles

• Integrity

• Competition

• Client Service

• Equal Treatment

• Organizational Objectives

UNICEF Vaccine Procurement Principles

A healthy industry is vital to ensure uninterrupted and sustainable

supply of vaccines

Procurement from multiple suppliers for each vaccine presentation

Procurement from manufacturers in developing countries and

industrialized countries

Paying a price that is affordable to Governments and Donors and a

price that reasonably covers manufacturers minimum

requirements

UNICEF should provide manufacturers with accurate and long-term

forecasts; Manufactures should provide UNICEF with accurate

and long-term production plans

As a public buyer, providing grants to manufacturers is not the most

effective method of obtaining capacity increases

The option to quote tiered pricing should be given to manufacturers -

in accordance with the World Bank classification.

GAVI Vaccine Supply and Procurement Objectives

1. Balance of supply/demand

• Ensure sufficient availability to at least meet total GAVI

demand

• Provide consistent uninterrupted supply to GAVI

countries.

2. Cost of vaccine to GAVI and countries

• Minimize cost per course

• Minimize cost implications

3. Appropriate and innovative vaccines

• Procurement of appropriate, quality vaccines to meet

GAVI country needs

• Foster an environment for innovative vaccines

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Tendering Process

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Establishment of 2-4 year Supply Arrangements for vaccines

included in this round of tenders

• Current Arrangements cover supply through 2012

• Next Arrangements will cover 2013 and beyond

UNICEF establishes “framework arrangements” called Long Term

Arrangements (LTA‟s)

• Purpose: To establish forecasts on quantities to be

produced and quantities to be bought over the LTA duration

• Defines Technical, Quality and Commercial requirements

The Expected Tender Outcome:

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The tender process

Develop, Issue, Receipt

1. Development of procurement strategy and objectives

2. Demand / Forecast development

3. Development of draft tender document with PRG*

4. Pre-tender meeting with industry

5. Feedback from industry and finalization of tender document

6. Issuance of tender

7. Clarifications

8. Receipt of proposals

*PRG: Procurement Reference Group established for some GAVI supported vaccines

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The tender process

Evaluation, Award

9. Technical review (by WHO)

10. Quantitative and Qualitative review

11. Clarification meetings/calls with suppliers

12. Evaluation of proposals per Evaluation Criteria & Procurement Objectives

13. Consultation with PRG* and Partners

14. Recommendation of awards based on evaluation

15. UNICEF internal award approval process

16. GAVI approval, and provision, of any financial requirements

17. Information of outcome to PRG

18. Notification of awards to proposers

19. Public posting of awards (www.unicef.org)

20. Debriefing

21. Establishment of Arrangements

*PRG: Procurement Reference Group established for some GAVI supported vaccines

Overview of main 2012 tender activities* for procurement 2013+

*Estimated timelines, may be adjusted

January February March April May June

Second Industry

Consultation (tent)

Tender closing: OPV,

traditional EPI

Issuance: PCV Call

for Offers

Awards: IPV, Hib-

containing for non-

GAVI countries

July August September October NovemberDecember/January

2013

Tender issuance:

Yellow Fever

Tender closing:

Yellow Fever

Awards: Yellow

Fever

Awards: PentavalentAwards:

IPV/Hexavalent (tent)

Tender issuance:

New vaccines for

MICs (tbd)

Tender closing: New

vaccines for MICs

(tbd)

Awards: OPV,

Measles containing,

traditional EPI

Awards: PCVTender issuance:

IPV/Hexavalent (tent)Awards: New

vaccines for MICs

(tbd)

Industry consultation

Finalization of

strategies and tender

issuance: IPV, OPV,

traditional EPI

Tender issuance: Hib-

containing vaccines

for non-GAVI

countries

Tender closing: IPV,

Hib-containing

vaccines for non-

GAVI countries

Tender Issuance:

Pentavalent,

Measles-containing

Tender closing:

Pentavalent,

measles-containing,

PCV

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Consultations with Industry and Partners

Feedback from first Industry Consultation in 2001 was a major

contributor to UNICEF‟s change in procurement strategy

Major changes to procurement approach

• From short term, lowest price to ensuring Vaccine Security

• From single-year to multi-year tenders

• From ITB to RFP

• From one award per vaccine to multiple awards per vaccine

• Establishment of vaccine procurement principles

Continued dialogue with industry through:

• Industry Consultations

• Meetings with current and potential suppliers,

• UNICEF participation in industry meetings

Continue to develop and adjust strategies incorporating feedback

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Tender Methodology

Request for Proposal

Request for Proposal (RFP) vs. Invitation to Bid (ITB)

• The RFP is found most appropriate for tendering for products that

are complex and where the evaluation will be considering various

factors

• The RFP provides manufacturers with the opportunity to develop a

proposal incorporating all factors that are needed for their vaccines

to be produced and sold

• The RFP allows for dialog on different presentation options,

production volumes, timing of production for linked and competing

vaccines

For vaccine tendering, UNICEF is in general opting for:

RFP

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Tender Duration

Single-year vs. Multi-year

Single year: demand is more ad hoc and changing; but not very responsive to manufacture production planning

Multi-year: more appropriate for production planning cycles

But how long?

• Based on feedback from manufacturers

• Balance between bringing stability to the market and keeping the market active/attractive for new entrants

• UNICEF opted for 5-year for OPV (2000-2004), but this had varying results

• OPV tender: 2 years informed by programme characteristics

• Pneumococcal / AMC tender: 15 years

For vaccine tendering, UNICEF has in general opted for:

Single-year tenders: ad hoc needs

Multi-year tenders: EPI vaccines introduced in routine programmes

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Invitee List

Only WHO PQ manufacturers vs. All manufacturers

• UNICEF buys from WHO PQ manufacturers

• UNICEF used to only invite manufacturers of WHO PQ vaccines

• But for multi-year tenders, UNICEF does not want to luck out

potential manufacturers that become WHO PQ during the tender

duration

• UNICEF also wants „new‟ manufacturers to become familiar with

UNICEF procurement process


Single-year or single delivery tenders: Manufacturers of

WHO PQ vaccines

Multi-year tenders: All manufacturers

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Product Range

Many vaccines in one tender vs. Separate tender for each vaccine

• Many products have linkages- in forecast (eg, DTP and DTP-HepB-Hib

combination vaccines)

• Vaccine tenders are large and terms and conditions- lengthy documents

• Lengthy tender process when establishing 3-year arrangements

• Specific tender objectives and processes for some vaccines


Separate tender for OPV: Large volumes, changing demand

Separate tender „specials‟: eg, Rabies, Cholera, etc.

10-12: EPI Vaccines in Separate tender

10-12: GAVI funded HepB/Hib in Separate tender

10-12: YF vaccines in Separate tender

10-12: M vaccines in Separate tender

2013+: OPV in Separate tender

2013+: EPI Vaccines in Separate tender

2013+: GAVI funded HepB/Hib in Separate tender

2013+: YF vaccines in Separate tender

2013+: M vaccines in Separate tender

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Closed vs. Public Opening of Proposals

Some manufacturers have requested for additional feedback or

public opening to have better access to information.

Usually we have not conducted Public Openings for RFPs.

As UNICEF is moving towards higher degrees of transparency it

is under consideration to move to Public Opening of Proposals.

To ensure transparency, UNICEF is redesigning the Answering

Sheets to counter the risk that the limited information which is

shared during a Public Opening is misunderstood or misleading.

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Evaluation Criteria Options

Various options to evaluation criteria:

Option a) Lowest price is awarded full offered quantity, then second

lowest, etc, until required quantity is fulfilled.

Option b) Pre-defined weightings of each factor (past on-time delivery

performance, price, delivery schedule, future production plans, VVM,

shelf-life, ability to maintain buffer stock, timeline for emergency

response (packaging), shipping performance, etc.)

Option c) Quantitative and Qualitative review (of above factors) against

Pre-defined procurement objectives and principles.


Single-year or single-delivery tenders: option (a)

Multi-year tenders: option (c)

Proposals – opportunity to provide innovative proposal

features to help us achieve exceptional results.

UNICEF is inviting proposers to offer alternative terms that bring real

value to the proposer and thereby enable a more attractive offer.

This could be issues such as currency, firm contracting, payment

terms.

Some guidelines on when alternative would be considered by

UNICEF:

Exceptional and considered in cases were the benefit was

substantial and could justify the additional risk/commitment.

UNICEF requirements:

• attractive offer, enabling to meet the tender objectives

• financial and non-financial risk analysis to be conducted

• available mitigation measures

• an identified, informed and consenting funding source

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Currency of proposals – USD and EURO

Background:

Manufacturers have requested the possibility of quoting in EURO.

UN and UNICEF accounts are in USD. With the large value, long durations and multiple transactions associated with vaccine contracts (LTAs) UNICEF has required USD only in the past.

EURO contracts require higher degree of internal funds management, planning and coordination with countries to keep up with effect of currency changes.

UNICEF in response requests:

Proposers are required to quote in USD, but may provide a quote both in USD and EURO.

UNICEF will evaluate the USD FCA price or the EURO price, whatever is in the interest of UNICEF, but UNICEF reserves the right to award in USD only.

If a EURO offer is awarded, the resulting LTA will be in EURO throughout its duration.

Who is eligible for an award?

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Meeting all mandatory requirements, including :

- WHO Pre-Qualified product

- UN Global Marketplace (UNGM) registration

- Financial requirements / Approval by UNICEF supplier

evaluation unit

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1. In order to allow for the entrance of new manufacturers in the market

UNICEF includes a set of conditions under which award(s) would be

considered after the initial award(s).

2. If the supplier is not WHO pre-qualified for the product offered at time

of tender, their proposal must include a detailed plan on the timeline

to obtain WHO pre-qualification, including:

• Product Development

• Clinical Trials

• National Regulatory Licensing

• File submission to WHO

3. If the manufacturer‟s proposal was deemed of commercial interest to

UNICEF, UNICEF and WHO should be kept informed about the

progress towards the submitted timeline.

What happens when manufacturer gets WHO PQ in the

middle of a UNICEF multi-year tender?

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4. If the proposed vaccine obtains WHO pre-qualification and upon

confirmation that the mandatory requirements of the RFP are met,

UNICEF considers establishing an awarded/re-allocated quantity to

the manufacturer under one or more of the following conditions:

• UNICEF is facing a monopoly situation or a near-monopoly

situation;

• Lack of performance of current manufacturer(s); or

• Insufficient supply from current manufacturer(s)

5. The quantities considered for award would be those not met under

established contracts or quantities that could be reallocated from

existing arrangements after negotiation with the corresponding

suppliers.

What happens when manufacturer gets WHO PQ in the

middle of a UNICEF multi-year tender?

Post-award Debriefings

“What can we know about our competitor‟s offer?”

• All manufacturers are advised of the outcome of their proposal

• Manufacturers receiving an award are invited to a formal debriefing

• Manufacturers not receiving an award may request a debriefing

• During a debriefing session, the strengths and weakness of the manufacturer‟s proposal may be discussed. Details concerning the evaluation, results of a competitor‟s proposal will not be discussed, other than what is publicly available.

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Public Notification of Awards

UNICEF has standard procedures for publication of awards on website:

• Tender, duration, total value, material(s), supplier name

• This is UNICEF standard procedure (not just immunization)

After awards, all Proposers will receive a letter including the following

information:

• Total vaccine quantity awarded per year per presentation at an

aggregate level

• Number of suppliers awarded per year per vaccine presentation

• Yearly awarded weighted average price (WAP) per vaccine

presentation

• Total contract value awarded to each supplier, with listing of

included vaccines.

Annual awarded weighted average price for each vaccine presentation

will be posted on the UNICEF web-site.

Transparency on vaccine prices and markets

Supporting countries to make informed decisions

As a public procurement agency, recognising the need for increased

transparency

Price Transparency

• Historically, UNICEF has posted weighted average pricing for

current year

• Specific country pricing provided in response to the forecast at

the onset of the year – not named supplier

• Since January 2011 posted all historic pricing contracted under

LTA for 2001-2010

Looking forward: New transparency efforts to be introduced

• Additional pricing information

• Market development and dynamics

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Examples of Controls and Oversight

Internal Oversight

• UNICEF Financial Rules and Regulations

• UNICEF Procurement Procedures

• Ethical Code

• Contracts Review Committee (independent from contracting staff)

• Procurement Training and Certification of contracting staff

External Oversight

• UN External Audit

• UNICEF Internal Audit

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Ensuring equal treatment, no bias and ethics

• Contracting staff are governed by UNICEF Financial Rules and Regulation and procedures related to ethical behaviour

• During the time when a tender is open (from tender issuance to closing) - communication with suppliers is more formal and written, in accordance with tender instructions

• Bids/proposals are received and validated by an independent „Bid Section‟ (QA) and then transferred to Contracting staff

• UNICEF does not accept manufacturers to fund trips, hotels, etc. or gifts

• Business should be conducted during normal working hours

• Meetings should be with minimum two UNICEF staff members

• Suppliers not invited to UNICEF staff offices

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Tender document

and Proposals review

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Overview of Tender Document

5 Main Sections

1. Purpose

• The objectives of the tender

2. Background

• Procurement Principles

• Forecasting Methodologies

• Programmatic background relevant to understand the requirement

• Information highlighting changes or specific points such as; scenarios for vaccines, and USD/EURO description

3. Instruction to proposers

• How to make and submit a proposal

• Information on how UNICEF will handle proposals, including definition of mandatory requirements

• Information on how UNICEF will debrief and share result of tender outcome.

UNICEF


4. Terms and Conditions (list not exhaustive)

• Mandatory technical requirements WHO Technical Requirements

• Mandatory financial and commercial requirements, such as;

• UNGM registration

• Financial Requirements / Approval by UNICEF Supplier Evaluation Unit

• VVM, Shipping and Packaging Instructions, Primary Containers, ETTMD, Vaccine Arrival Report, weight and volumes, samples

• Commercial Requirements; currency, MFN, Incoterm

• Account Management, past performance, affordable prices, monthly Allocations, Emergency response preparedness

• Special terms and conditions; ethical clauses

• General Terms and Conditions

• Evaluation of proposals and basis for awards

Methodology, process and criteria

UNICEF


5. Answering sheets

During previous tenders the Answering Sheets have been structured as

follows:

• RFP Proposal form

• Qualitative Proposal sheets – for guidance

• Quantitative Proposal sheets – one for each vaccine, and

alternative offered

• Tender Quantities

• Presentation specific

• Requested information: Quantities, price, currency, commercial

factors, lead time, packaging/weight/volume, VVM

UNICEF is considering to revise the structure of the Answering Sheets in

order to separate Commercial and technical aspects of proposals

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Annexes

• UNICEF General Terms and Conditions

• Shipping Guidelines

• VVM Specifications

• WHO Model Inserts

• UNICEF Supplier Financial Evaluation Form

• Vaccine Arrival Report


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Proposals from Manufacturers

Manufacturers are invited to submit a comprehensive proposal

• Responsive to forecasted demand quantities for each product presentation

• The type of vaccine being proposed, and specifications

• Unit price per vial and per dose

• Annual and monthly production for first year

• Alternative vaccine presentations/products

• Comply with all MANDATORY REQUIREMENTS

• Comply with the INSTRUCTIONS TO PROPOSERS and information requested

• Provide explanations to any request for exceptions or clarification on the RFP PROPOSAL FORM

UNICEF and WHO will review the proposal.

UNICEF will hold discussions with manufacturers.

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Proposal Evaluation Process

Review of Mandatory Requirements

• WHO Pre-qualification

• Financial Review by UNICEF Supplier Evaluation Unit

(SEU)

• Compliance to UNICEF General Terms and Conditions

Quantitative Review of Proposal

• Products offered, quantities, price, delivery schedule, lead-

times, ability to maintain buffer stock, shelf life, VVM,

volume requirements

Qualitative Review of Proposal

• Proven experience and past performance

• Ability to perform account management / good

communication

• On-time delivery performance

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Technical Review of Proposals

Technical aspects of Proposals are reviewed by WHO

Key areas that WHO review are:

• compliance to mandatory technical requirements

• compliance to preferred technical requirements

• for products not WHO pre-qualified at time of offer, WHO

conducted an assessment of timeline given for pre-

qualification

• other technical issues (Regulatory oversight, etc..)

WHO will also assess timelines for production capacity increases,

where applicable.

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Basis for Awards

The allocation of awards to each supplier will be made in

accordance with the UNICEF Vaccine Procurement Principles

and with the objective of

Ensuring an uninterrupted sustainable supply of affordable, quality

vaccine, meeting the specific tender / market objectives.

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Establishment

and Management of LTAs

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UNICEF awards Long Term Arrangements

UNICEF issues monthly forecast updates / Manufacturer provides monthly production schedule (12 month period…)

UNICEF places Purchase orders upon receipt of funding for Countries (from 1 week to 6 month in advance)

UNICEF / Manufacturer hold regular meetings

During 4th quarter, UNICEF confirms next year‟s annual forecast projection / Manufacturer confirms production

Vaccine is shipped direct to Countries

via UNICEF Contracted Freight Forwarder

via Manufacturer

Vaccine is inspected upon receipt in country. Vaccine Arrival Report is returned to UNICEF SD

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Procurement Overview

UNICEF Issues Formal Tender and Evaluates Offers

Establishment of Long Term Arrangements for supply of vaccines for 3 years

Purchase Order

Purchase Order

Purchase Order

Purchase Order

Manufacturer Shipment




Country Inspects

Invoice Paid

Invoice Paid

Invoice Paid

Invoice Paid

If there are

disputes on quality,

WHO advice

governs

Country Inspects

Country Inspects

Country Inspects

The continuous changes in both supply and demand creates a

dynamic market that requires continuous monitoring and

management.

Systems are in place to monitor demand against supply and to report regularly both to manufacturers, countries and regional offices.

Rigorous guidelines are applied to ensure the safe delivery of

vaccines and the reporting of condition on arrival through the

Vaccine Arrival Report.

UNICEF can reallocate demand and supply between

Countries and Suppliers, to avert crisis and level out demand

fluctuations

UNICEF‟s Supply Management of Vaccines

~40 Vaccines

> 20

Suppliers

80-100

countries

Global

Partners

Vaccine Shipments

UNICEF Supply Division

• UNICEF contracted Freight Forwards (Kuhn&Nagel and Scan Global

Logistics)

• Use of Electronic Temperature Time Monitoring Devices

• Use of Vaccine Arrival Reports

PO

released

Supplier issues PO

Acknowledgement

Form

Supplier

delivers goods

FCA

FF sends pre-

arrival notification

to consignee

Goods

delivered to

consignee

Supplier provides

documents to FF

Goods are

shipped

Supplier confirms

Delivery date to FF

& UNICEF

PRQ

Agreed

arrival date

with

consignee

5 days 3 days

14 days

Suppliers and Freight Forwarders to collaborate through standard operating

procedures

• Suppliers: suitably packed, labelled, export-cleared goods to be delivered to the

designated airport (FCA - Incoterms 2010) airport on the date specified in the

UNICEF Purchase Order.

• Freight Forwarder: coordinates shipping schedule, obtains airline booking, follows

through international shipment

• UNICEF & consignee: confirm state of goods upon arrival

Shipping organization and responsibilities

Information available on the UNICEF public website

Presentation materials from previous pre-tender meetings are available on this website

Other important information available on this website is as follows.

- Historical annual procurement values and

volumes:

http://www.unicef.org/supply/index_38554.html

- Current Weighted Average Prices:


- Vaccine Price Data by suppliers:







UNICEF


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Thank you !

UNICEF


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Healthy Market

Different views of assessing the health of each vaccine market

Number of suppliers per

vaccine

Price

Pipeline

Availability vs Demand

Major Dependen-

cies

Supply interruptions

51

Healthy

Market

Example: the HepB Vaccine market

UNICEF


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Shipping Documents

Shipping Documents

a) Invoice

b) Air Waybill

c) Packing list

d) Release Certificate issued by the NRA in country of origin for

each lot supplied

e) Vaccine Arrival Report

f) Any other document specified in the Purchase Order

for example: Summary Protocol, Certificate of Origin,

Certificate stating that vaccines have been produced

according to GMP, Certificate of registration of product in

the country of origin, Quality analysis certificate

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Vaccine Security

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Availability development of the 4 basic vaccines to

UNICEF

Quantity Offered to UNICEF

0

100

200

300

400

500

600

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Milli

on

s o

f D

oses

Measles TT DTP BCG

Quantity Offered to UNICEF

0

100

200

300

400

500

600

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Milli

on

s o

f D

oses

Measles TT DTP BCG

Implementation of the Vaccine Security principles helps

vaccine availability

UNICEF


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CONTRACTING OF AFFORDABLE VACCINES • Forward commitments

• Healthy vaccine industry - variety of manufacturers from both industrialized and developing

countries

Elements of Vaccine Security

SURE FUTURE FUNDING

• Donors, Countries

• Working with Finance Ministries

ACCURATE, LONG-TERM FORECASTING OF DEMAND • Improve accuracy and length of forecasting (1-3 year plans at country level)

• Manufacturers need to give accurate forecasts as well

• Include buffer stocks

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