6
This delayed procurement further and resulted in ADB financing only two of the revised
packages.
14.
Revised package 1 was to procure a commercial off-the-shelf GFMIS application
software and main servers. ADB used a two-stage bidding procedure for the package, with
bidding announced in December 2009. Bid opening was originally planned for March 2010 but
was postponed to 28 April 2010. The evaluation of technical
proposals took longer than
expected and was completed in May 2011. The delays resulted from the need to finalize
technical requirements, the use of a complex procurement procedure, and a slow evaluation
process. Executing agency staff was unfamiliar with the two-stage bidding procedure. On
occasion, this led to different interpretations of ADB procedures and bidding documents
between the executing agency’s evaluation team and the ADB team. Three bidders were found
technically responsive
and passed to the second stage, and another three were requested to
submit price proposals and revised technical proposals. Only one bidder submitted its proposal
for the second stage in June 2011. The bidder’s price proposal was 43% above the budget and
the executing agency’s bid committee rejected the proposal and suggested rebidding in August
2011. In September 2011, the executing agency requested ADB to consider rebidding for this
package. The assessment for the rebidding timeline indicated that rebidding may result in a 2-
or 3-year loan extension to complete procurement and execute the contract. Given the
uncertainties associated with rebidding, ADB did not agree with the proposal.
12
Alternative
options were sought by the Project Steering Committee (PSC), which decided to split the
package
into two contracts, separating procurement of hardware and software development.
The executing agency proposed to finance the development of a GFMIS software based on
Treasury-4, the Treasury’s existing application software.
13
The executing agency assessment
showed that Treasury-4 has 80 percent of the required functional requirements envisioned
under a new GFMIS. Thus, the executing agency proposed to change the approach and
develop Treasury-4 into a modernized in-house application using the already approved
schedule of technical requirements for the GFMIS. These were to be financed in 2013–2015
from the state budget following government procurement procedures. The loan amount related
to this package ($10.4 million) was canceled along with savings (para. 22).
15.
During 2013–2017, ADB’s further involvement with the procurement of revised package
1 stopped because the loan was closed. ADB did not provide financing for this package. In 2013,
the executing agency, using the schedule of technical requirements for software and hardware
developed under the project, split GFMIS procurement into two contracts: (i) procurement from
local software developers for services to complete the transformation of Treasury-4 into a
modernized GFMIS with software support until 2023, and (ii) procurement of main and backup
servers from international suppliers.
14
Some changes resulted
in the need for the MOF to
prepare new budget requirements and seek budget approvals to fund the software development
costs and the equipment. In 2013–2014, two bid opportunities using the national procurement
system were organized by the MOF for GFMIS software development and server procurement.
The procurement of servers was funded by the 2014 and 2015 state budget, with installation
commencing in June 2015. The procurement of software developer services took longer. After
receiving three bids, the MOF selected an Uzbek IT firm and Treasury-4 developer to design
and develop the GFMIS. The process was expected to be completed by 2015. However, delays
in contract signing resulted in development taking place in 2015–2016.
The modified GFMIS
12
Rebidding could have resulted in need for loan extension for at least 3 years.
13
Treasury-4 is an upgraded software package run by the Treasury during 2007–2011 to ensure operations. It was
supposed to be replaced by the new GFMIS procured under the project.
14
The technical requirements were developed under ADB-funded TA on Supporting Public Finance Management
Reform.
7
was ready for testing in February 2017 in one selected province and one district and is expected
to be rolled out in the remaining provinces beginning in June 2017.
16.
Revised package 2 was to procure computers and office equipment for the treasury
offices. Revised package 3 was to procure telecommunications equipment, local area
networking, infrastructure equipment, and support systems. ADB
loan proceeds were used to
procure these packages. The executing agency initially decided to postpone procurement of
these packages as it wanted to first procure the GFMIS contract package. This decision delayed
the process. Bidding documents were approved in May 2011, bid proposals were opened in July
2011, and proposal evaluation was completed in August 2011. In November 2011, ADB issued
no-objection letters to contract awards for both packages. The contracts totaled $6.194 million
and were submitted to ADB on 27 December 2011. ADB and the PMO developed a detailed
contracts implementation plan to ensure timely delivery of goods and related services before the
loan closing date. The delivery of goods was completed as planned.
17.
ADB also provided consulting services under the associated TA grant to help prepare
the technical requirements of; bidding documents for; and revised budget, revenue, functional,
and economic classification of state budget expenditures for all packages.
15
18.
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