Para 3.5 — WORKS_MANUAL
Original Rule Text
3.5 Modes of Tendering ................................................................................................39 Chapter 4: Preparing Bid Documents, Publication, Receipt and Opening of Bids ................51 4.1 Bid Documents........................................................................................................51 4.2 Preparation of Bid Documents by Procuring Entity.................................................53 4.3 Publication of Bid Documents .................................................................................54 4.4 Issue/ Availability and Cost of tender documents ...................................................56 4.5 Eligibility and Qualifications of Bidders ...................................................................56 4.6 Clarification of Tender Documents..........................................................................57 4.7 Amendment of Tender Documents .........................................................................57 4.8 Pre-bid Conference.................................................................................................57 4.9 Submission of Bids by Bidders................................................................................58 4.10 Receipt and Opening of Bids...............................................................................62 4.11 Bid Security/ Earnest Money Deposit (EMD).......................................................64 4.12 Performance Guarantee......................................................................................65 4.13 Security Deposit/ Retention Money .....................................................................66 4.14 Sources and Verification of Bank Guarantees.....................................................66 4.15 Safe Custody and Monitoring of Securities .........................................................67 4.16 Goods and Services Tax (GST) ..........................................................................67 4.17 Risks and Mitigations- Preparing Bid Documents, Publication, Receipt and Opening of Bids .................................................................................................................69 Chapter 5: Evaluation of Bids and Award of Work ................................................................71 5.1 Evaluation of Bids ...................................................................................................71 5.2 Schedule of Procurement Powers (SoPP)..............................................................71 5.3 Preparation of Comparative Statement and Briefing
Note......................................72 5.4 Preliminary Examination .........................................................................................72 5.5 Evaluation of Responsive Bids................................................................................74 5.6 Deliberations by the Tender Committee..................................................................76 5.7 Award of Work.........................................................................................................82 5.8 Evaluation of Bids and Award of Contract - Risks and Mitigations .........................86 Chapter 6: Execution and Monitoring of Works and Quality Assurance................................89 6.1 Execution and Monitoring of Work...............................................................................89 6.2 Quality Assurance...................................................................................................91 6.3 Design Approvals....................................................................................................91 6.4 Time Monitoring ......................................................................................................91 6.5 Financial Monitoring................................................................................................93 6.6 Commissioning and Documentation ....................................................................101 xi 6.7 Closure of Contract ...............................................................................................102 6.8 Dispute Resolution Mechanism.............................................................................103 6.9 Conciliation............................................................................................................104 6.10 Arbitration .........................................................................................................104 6.11 Breach of Contract, Remedies and Termination ...............................................106 6.12 Preparation of Revised Project Report..............................................................107 Chapter 7: Registration/ Enlistment of Contractors and Governance Issues ......................109 7.1 Contractor Relationship Management...................................................................109 7.2 Code of Integrity for Public Procurement (CIPP) ..................................................109 7.3 Integrity Pact (IP) ..................................................................................................112 7.4 Development of New Sources and Registration/ Enlistment of Contractors.........115 7.5 Debarment ............................................................................................................118 7.6 Project Management.............................................................................................121 ANNEXURE.........................................................................................................................129 Annexure 1: Procurement Guidelines..................................................................................130 Annexure 2: Bid Opening Attendance Sheet cum Report ...................................................131 Annexure 3: Tender Committee Minutes Format ................................................................132 Annexure 4: Invitation and Declaration for Negotiations .....................................................134 Annexure 5: Format of Revised Offer in Negotiations.........................................................135 Annexure 6: Letter (Notification) of Award (LOA) of Contract .............................................136 Annexure 7: No Claim Certificate ........................................................................................137 Annexure 8: A Sample MOU ...............................................................................................138 Annexure 9: Flowchart of Process of Procurement of Works..............................................146 Annexure 10: Additional Resources relating to Procurement of Works ..............................148 Annexure 11: Format for seeking the approval of the Competent Authority for inviting Global Tender Enquiry for procurements less than Rs. 200 crores................................................149 Annexure 12: List of Medical Devices and IVDs, where local manufacturers are not available, as on 17.12.2021 (as verified with the Medical Devices Manufacturing Associations) .......151 Annexure 13: Model Clause/ Certificate to be inserted in tenders etc. w.r.t Order (Public Procurement No.1) ..............................................................................................................154 Annexure 14: Example of Formula for Price Variation Clause ............................................157 Appendix 1: Advanced Concepts of Value for Money and Fundamental Principles of Public Procurement........................................................................................................................159 1.0 The Concept of Value ...........................................................................................159 2.0 Total Cost of Ownership........................................................................................159 3.0 Value for Money....................................................................................................160 4.0 Fundamental Principles of Public Procurement ....................................................160
3.5.1 21Open Tender Enquiry (OTE) i) In OTE, an attempt is made to attract the widest possible competition by publishing the NIT simultaneously on the designated websites and in the press (newspapers and trade journals). This is the default mode of procurement and gives the best value for money but the procedure is relatively complex and prolonged. The systemic cost of this procedure may be high enough to be unviable for smaller value procurements. OTE procedures through e-procurement or through traditional tendering should be adopted for procurement values above Rs five lakh.
i) Open Tender Enquiry (OTE); and ii) Global Tender Enquiry (GTE); iii) Limited Tender Enquiry - LTE (up to Rs. five lakh); [Rule 139
(iii) of GFR, 2017] iv) Single Tender Enquiry (STE) or selection by nomination; v) Award of Work through Quotations.
3.5 Modes of Tendering Offers from prospective bidders in public procurement must be invited according to a procedure that achieves a balance between the need for the widest competition, on one hand, and complexity of the procedure, on the other hand. Different modes of procurement and bidding systems are used to suit various procurement circumstances to achieve this balance. There are laid down procedures for delegation of powers of procurement to various competent authorities under different modes as shown in DFPR. Each procuring entity may also publish its own Schedule of Procurement Powers (SOPP) delegating such powers within the entity. The various modes of procurement that can be used in public procurement of works are:
ii) Terms and Conditions a) Participation should not be restricted to only Bidders enlisted with the Procuring Entity. Bidders already enlisted are also free to participate. However, a requirement that successful un-enlisted Bidders may have to get enlisted with the Procuring Entity, before contract is placed on them. b) GFR 2017 (Rule 159) makes it mandatory for all Ministries/ Departments of the Central Government, their attached and Subordinate Offices and Autonomous /Statutory Bodies to publish their tender enquiries, corrigenda thereon and details of bid awards on the Central Public Procurement Portal (CPPP) and has dispensed with print-advertisements in Newspaper etc. An organisation having its own web site should also publish all its advertised tender enquiries on the web site. The procuring entity should also post the complete bidding document in its web site and on CPPP to enable prospective bidders to make use of the document by downloading from the web site. The advertisements for invitation of tenders should give the complete web address from where the bidding documents can be downloaded (for details see para 4.3). In order to promote wider participation and ease of bidding, no cost of tender document may be charged for the tender documents downloaded by the bidders; and c) The tender documents should be prepared on the basis of the relevant approved SBD for the category of procurement. Further details on preparing tender documents are provided in Chapter 4. d) The sale/ availability for downloading of tender documents against NIT should not be restricted and should be available freely. Tender documents should be available for download free of cost up to the date of opening of tenders. The organization should also post the complete tender document in the web site and permit prospective tenderers to make use of the document downloaded from the web site. If the tender document is a priced one, there should be clear instructions for the tenderers in the document (which has been downloaded) to pay the amount by demand draft etc. along with the tender, prepared in the downloaded document. e) The procuring entity shall maintain proper records about the number of tender documents sold, list of parties to whom sold, details of the amount received through sale and, also, the number of unsold tender documents, which are to be cancelled after the opening of the tenders.
3.5.2 OTE - Risks and Mitigations Risk Mitigation Since the crux of this mode of procurement is attracting bids from all possible prospective bidders. The risk is that this may not be achieved, even after incurring extra cost of open tendering. This could be due to • Insufficient publicity; • Hindrances in availability of bid documents; • insufficient time for bid preparation; or • Due to onerous cost of biddocuments or EMD It should be ensured that the NIT on the website is easily searchable and visible, not hidden under layers of clicks. The matter should not be left entirely to the website or media publicity alone. Due diligence should be done to locate likely bidders (including past bidders) and their attention should be drawn though SMS/ mail/ email. All enlisted vendors/ contractors (in particular past successful vendors/ contractors) should be given intimation about forthcoming tenders via SMS/ mail/ email. Further a limited or open tender which results in only one effective offer shall be treated as a single tender enquiry situation, with relevant powers of approval etc. It should be also ensured that there is no impediment to issue/ access of bid documents. The due date fixed for opening of the tender shall be minimum 21 (twenty-one) days from the date of advertisement which may vary, taking into account the nature of material called for and delivery requirements. The due date may be subsequently extended with the approval of the CA, only if it is felt necessary to have better competition.
3.5.2 OTE - Risks and Mitigations Risk Mitigation The tender documents, shall be priced minimally (if at all priced, refer Para 4.4 Issue/ Availability and Cost of Tender Documents) keeping in view the value of the tender as also the cost of preparation and publicity of the tender documents. EMD should be sufficient to ensure that bidders honour their bids but at the same time should not be large enough to reduce competition. Lack of clarity in description/ specification of requirement or undue stringency in qualifying criteria or other conditions Mitigations of such risks can be addressed at the time of need assessment and procurement planning, so as to attract adequate competition.
a) Where required Technology/ specifications/ quality are not available within the country and alternatives available in the country are not suitable for the purpose; b) Very high value contracts (procuring entities may adopt threshold limit e.g. above Rs 100 crore) or where absence of a sufficient number of competent domestic bidders likely to comply with the required technical specifications, and in case of suspected cartel formation among indigenous bidders where participation of International bidders would enhance value for money.
3.5.3 22Global Tender Enquiry (GTE) i) GTE is similar to OTE but, through appropriate advertising and provision for payment in Foreign Currencies through Letter of Credit, it is aimed at inviting the participation of inter-alia foreign firms. The point of balance between VfM and cost/ complexity of procedure is further aggravated as compared to OTE. Development of local industry also needs to be kept in mind. Hence, it may be viable only in following situations:
ii) Terms and Conditions i) Publishing of tenders may be done as described in case of OTE above. In addition, in GTE tenders copies of NIT should be circulated to Indian Embassies in relevant countries and embassies of those countries in India; and; and ii) The tender documents, shall be priced minimally (if at all priced, refer Para 4.4 below) keeping in view the value of the tender as also the cost of preparation and publicity of the tender documents; iii) GTE tender documents must be in English and the price should be asked in Indian Rupees or US Dollars or Euros or Pound Sterling or Yen or in currencies under the Reserve Bank of India’s notified basket of currencies or a mix of any of these currencies; iv) GTE tender documents must contain technical specifications which are in accordance with national requirements or else based on an international trade standard; v) The due date fixed for opening of the tender shall be usually about four to six weeks from the date of advertisement which may vary taking into account the nature of material called for as well as the time required to prepare the bids. The due date may be subsequently extended with the approval of the CA only to promote better competition and also considering account delivery requirement.
3.5.4 No Global Tender Enquiry (GTE) up to Rs. 200 crores23 shall be invited or such limit as may be prescribed by the Department of Expenditure from time to time. In exceptional cases where the Ministry or Department feels that there are special reasons for inviting GTE, for tenders below such limit, it may record its detailed justification and seek prior approval for relaxation from the Competent Authority specified by the Department of Expenditure.
a) The proposal for approval shall be submitted by Administrative Ministry with the concurrence of Financial Advisor and approval of Secretary concerned. The proposals submitted by individual offices/ organisation (e.g. autonomous bodies, Central Public Sector Undertakings and subordinate offices of Central Government etc.) will not be entertained. b) The proposals shall be submitted along with duly filled format24 (placed at
Annexure11). 3.5.5 Before sending the proposals for approvals of the Global Tenders, following is to be ensured:- a) Domestic open tender must be floated to identify the domestic manufacturers/ service providers for the items/ services for which approval is being sought for issuance of Global Tenders. In case, if the Ministry/ Department has not floated a domestic open tender after 15.05.2020 for the items to be procured through GTE, such proposals will not be entertained. The proposal must contain the details of domestic open tenders, issued after 15.05.2020.These details shall cover tender number, date of opening, number of offers received, details of offers received, reasons why domestic suppliers were not considered etc.
b) The proposal must contain the details of deliberations with DPIIT/ relevant industrial bodies for identification of domestic manufacturers/ service providers.
c) The 3/5-year procurement plan as mandated by Public Procurement (Preference to Make in India) (PPP-MII) order issued by DPIIT must be published on website, before forwarding proposals for the purpose of procurement through GTE. Web-link of published procurement plan should be provided in proposal.