2007年-世界发展银行全球_Afghanistan_-_Country_Procurement_Assessment___Consulting_Services_47页_666kb

Afghanistan Country Procedure Assessment: Consulting Services

Core Content

This document presents an assessment of Afghanistan's public procurement procedures, particularly in relation to consulting services, conducted by Martin Ehrenberg in 2006. It is part of a broader World Bank review of public finance in Afghanistan and builds on the 2005 World Bank assessment. The report evaluates the effectiveness of the Government of Afghanistan (GoA) and the World Bank's procurement strategies and identifies key challenges and recommendations for improving the procurement environment.

Main Findings

• Security Situation: A major obstacle to reconstruction, especially in provinces outside Kabul. International consultants and staff avoid high-risk areas, and local staff often lack security incentives to work in conflict zones.
• Consultant Selection: The selection process is inefficient due to limited international consultant participation, lack of trust in the GoA's procurement capacity, and high entry costs. The average number of proposals from international consultants is low, and many fail to meet the Minimum Qualifying Score (MQS).
• Local Consulting Sector: Very underdeveloped, with only a few firms operating. These firms lack qualifications, experience, and familiarity with procurement procedures, making it difficult for them to meet the GoA and Bank's criteria.
• Procurement Capacity: Weak among both GoA and international procurement staff, with limited understanding of procurement principles and processes. Evaluation of proposals and drafting of Terms of Reference (ToR) are particularly problematic.
• Language and IT Barriers: Low English and IT proficiency hinders communication and capacity-building efforts, leading to confusion and inefficiencies.
• Legal and Regulatory Framework: The 2005 Public Procurement Law (PPL) and the 2007 Rules of Procedure for Public Procurement provide a good foundation but lack specific provisions for consultant selection and simplified procedures such as STP.

Key Recommendations

To the Government of Afghanistan

• R1: Develop a comprehensive policy paper on professional consultants to guide the PA and encourage local consulting firms.
• R2: Review the selection provisions of the procurement rules to account for the weak PA and local consulting sector. Consider the use of Simplified Technical Proposals (STP) and include details on QCBS.
• R3: Assign reputable international consulting firms to evaluate proposals and manage contracts in major Bank-funded projects. These firms can also assist in capacity building.
• R4: Encourage international and local firms to form partnerships and associations. Require international firms to transfer skills and knowledge to local advisors.
• R5: Include security considerations in ToR, allowing international consultants to perform services from outside the country when necessary.

To the World Bank

• R6: Improve procurement planning and supervision to avoid common weaknesses in technical assistance projects such as fragmentation and inadequate monitoring.
• R7: Include provisions for continuation of work by the same consultant under Single-Source Selection (SSS) in initial RFPs where justified.
• R8: Encourage partnerships and skill transfer between international and local firms.
• R9: Take security into account when drafting ToR, allowing international consultants to work remotely if needed.
• R10: Apply Quality-Based Selection (QBS) and Fixed Budget Selection (FBS) for standard assignments, QCBS only when justified, and use STPs as much as possible. Disseminate information on local consultancies to Bank staff and TTLs.
• R11: Improve the quality of the Procurement Consultant's monthly progress report by including data on international and national firm participation, billing rates, and collaboration patterns.
• R12: Collaborate with existing stakeholders such as the NGO Peace Dividend Trust and the American Society of Civil Engineers (ASCE) to support local consulting firms.

Key Information

• Document Date: June 2007
• Prepared by: Martin Ehrenberg (Consultant, SARPS)
• Visited Period: November 21 to December 3, 2006
• Key Agencies and Organizations:
  • GoA (Government of Afghanistan)
  • World Bank
  • AISA (Afghanistan Investment Support Agency)
  • ARDS (Afghanistan Reconstruction and Development Services)
  • ASCE (American Society of Civil Engineers)
  • GTZ (German Development Agency)
  • DFID (UK Department for International Development)
  • ADB (Asian Development Bank)
• Main Focus Areas:
  • Consultant selection
  • Development of local consulting capacity
  • Capacity-building for the Public Administration (PA)
  • Legal and regulatory framework improvements
  • Security and its impact on procurement
  • English and IT skills of procurement staff

Summary of Objectives

The assessment aims to determine whether the GoA's PA can efficiently access international and national consulting services under World Bank and Afghan procurement rules. It also evaluates the effectiveness of the Bank's and GoA's procurement policies and practices in supporting the development of local consulting capacity and ensuring transparency and fair competition in the selection process.

Conclusion

The report highlights the need for both the GoA and the World Bank to enhance the legal, institutional, and procedural frameworks for procurement. It emphasizes the importance of capacity-building, especially in the areas of consultant selection, local firm development, and improving the skills of PA staff in English and IT. The security situation and the lack of local expertise remain significant challenges that require targeted strategies and sustained support.