Government Procurement Law State Purchasing Forum

Government Procurement Law State Purchasing Forum
Office of General Services: Office of General Services: Office of General Services: Government Procurement Law State Purchasing Forum May 20 and 21, 2003

CONTRACT State Finance Law Executive Law Case Law
Uniform Commercial Code CONTRACT Federal Laws (e.g. Intellectual Property, Telecom) Procurement Council Guidelines

Pre-1995 PUBLIC CONTRACTING
HISTORICAL CONTEXT Purchase of Traditional Commodities Capable of standardization Articles of commerce (food, salt, linens) Public entities were predominantly large institutions. Services were bought individually by government agencies.

Pre-1995 PUBLIC CONTRACTING
Prior governing statute (§174 State Finance Law) provided minimal guidance for procurement and competitive bidding. Agencies were essentially relegated to contract awards for commodities to the lowest price bidder. Contracts for services or services procurements were not governed directly by statute.

Post-1995 PROCUREMENT STEWARDSHIP ACT
MAJOR CHANGE IN THE FRAMEWORK FOR PUBLIC PROCUREMENTS: State Finance Law, Article 11 Effective Date: 4/1/95 Sunset Date: /30/05

Procurement Stewardship Act
Underlying Principles and Legislative Findings Responsibility of OGS and State Agencies in cooperation with OSC and DOB to: - provide for the wise and prudent use of public money in the best interests of the taxpayers of the state; - guard against favoritism, improvidence, extravagance, fraud and corruption and - facilitate the efficient and timely acquisition of commodities and services of the highest quality at the lowest practicable cost within available resources.

Procurement Stewardship Act
State agencies shall provide the state’s primary line of defense for protecting the integrity of the state’s procurement process and shall be responsible for ensuring that the decisions made in executing that process are made in accordance with the highest standards of professional practice. Provide a “level playing field” among competitive bidders to enhance competition. Requires a “procurement record” – a documented process which provides a balanced and fair method, established prior to receipt of offers, for evaluation of bids.

Procurement Policy Procurement Council established to review, examine
and develop improvements to procurement process and competitive solicitation of bidding for commodities, services and technology.

Procurement Council [State Finance Law §161]
Nineteen Members Chair – Commissioner of OGS OSC DOB State Agency Representatives designated members Procurement Guidelines Procurement Policy Quarterly Meetings Strategic Plan

COOPERATIVE EFFORTS TO IMPROVE PUBLIC PROCUREMENT PROCESS
Multi-agency Cooperative efforts (OSC, OFT, OGS, municipalities). Effort to coordinate information and expertise on statewide level. Support necessary legislative and regulatory changes for best practice government procurement and competitive bidding. Forum for exchange of views by participants with opposing or different interest in procurement

Government Procurement & Competitive Bidding
Comprehensive Statutory Scheme Procurement Stewardship Act Article 11 State Purchasing Section Definitions State Procurement Council Preferred Sources Purchasing services and commodities (Sunset: 6/30/05) 163-a Vendor preparation of specifications for technology procurements; prohibitions Exemptions Purchasing restrictions

Section Requirements for financed equipment acquisition Transfer and disposal of personal property The management of surplus computer equipment

Procurement Guidelines Detailed Guidance to State Agencies on how to conduct procurements Summarizes in one place the multiple approaches to procurement Identifies essential elements of successful procurements Provides valuable technical guidance on different approaches for structuring a procurement; and Provides examples of good procurement practices

Definitions Commodities – Material goods, supplies, products, construction items or other standard articles of commerce (other than printing or technology) which are the subject of any purchase or exchange.

Definitions Services - Except for state printing, the performance of a task or tasks that may include provision of a material good or a quantity of material goods, and which is the subject of any purchase or exchange. Technology is deemed a service.

Definitions Technology – Either a good or a service or a combination thereof, that results in a technical method of achieving a practical purpose or in improvements in productivity. Goods may be either new or used.

Government Procurement &
Competitive Bidding Definitions Costs – As used in this article shall be quantifiable and may include, without limitation, the price of the given good or service being purchased; the administrative, training, storage, maintenance or other overhead associated with a given good or service; the value of warranties, delivery schedule, financing costs and foregone opportunity costs associated with a given good or service; and the life span and associated life cycle costs of the given good or service being purchased. Life cycle costs may include, but shall not be limited to, costs or savings associated with construction, energy use, maintenance, operation, and salvage or disposal.

Definitions Price – Unless otherwise specified means the amount of money set as consideration for the sale of a commodity or service and may include, but is not limited to, when applicable and when specified in the solicitation, delivery charges, installation charges and other costs.

Definitions Invitations for Bids (IFB’s) – Competitive Bidding Methodology Primarily used for procurement of commodities Basis for Contract Award Meet specifications Lowest price

“LOWEST PRICE” for Commodities Statutorily defined to include “costs” such as: administrative, training, storage, maintenance or other overhead associated with a given good or service value of warranties delivery schedules financing and foregone opportunity costs life span and associated life cycle costs (savings associated with construction, energy use, maintenance, operation, salvage or disposal)

Request for Proposals (RFP’s) Competitive Solicitation Methodology Primarily used for procurement of services and technology Basis for Award Pre-established evaluation criteria where cost is not necessarily the determining factor “Best Value” to the purchaser is the determinative criteria

“BEST VALUE” Bid Evaluation Criteria - Technical and Financial Qualifying Criteria: i. Documented in advance of the receipt of offers ii. Quantifiable wherever possible iii. Relative weight: technical vs. financial criteria

Best Value Documentation & Other Requirements BEST PRACTICES - BEFORE YOU SOLICIT: Document the intended basis for award. (such as meeting mandatory requirements, “best value” or “lowest price”) Determine the technical and financial evaluation criteria and relative weight. Quantify criteria whenever possible, to optimize quality, cost and efficiency Determine and document the evaluation and selection process Advertise the procurement

DISTINCTION - “Lowest Price” vs. “Best Value” [State Finance Law, §163] “Lowest Price’- “means the basis for awarding contracts for commodities among responsive and responsible offerors.“ “Best Value” - “means the basis for awarding contracts for services to the offeror which optimizes quality, cost and efficiency, among responsive and responsible offerors. Such basis shall reflect, wherever possible, objective and quantifiable analysis. Services includes technology.”

Types of Contracts – [State Finance Law §163]: Centralized Contract Agency Specific Contract Preferred Sources Emergency Contract Single Source Contract Sole Source Contract Multiple Awards Piggybacking (Adoption of Another Government Entity Contract)

Centralized Contracts “Centralized Contract” means any contract for the purchase of commodities or services, established or approved by the Commissioner of General Services as meeting the State’s requirements including, but not limited to, any contract let by the federal government, other state or local governments or purchasing consortia. Examples: Vehicles & heavy equipment Pharmaceuticals and medical equipment Electronic Value Transfer (credit cards)\Procurement Card Fuel Oil, Gasoline, Road Salt PC’s Rubbish Removal Telecommunications Systems and Services

Agency Specific Contracts Specialized Requirements Needed to Meet Agency Mission Consultant Services Digital Fingerprinting Identification Specialized Software Entertainment Services

Preferred Sources [State Finance Law §162] “To advance special social and economic goals, selected providers shall have preferred source status… Procurement from these providers shall be exempted from competitive procurement provisions. Preferred Status Correctional Services – Commodities Agencies for the Blind – Commodities and Services Agencies for the Severely Disabled – Commodities and Services Special Employment for Mentally Ill – Commodities and Services Disabled Veterans – Commodities and Services Veterans – Commodities and Services Qualified Apparel Manufacturer – September 11th Registry

Public List of Commodities and Services Approval by Procurement Council Price Approval – Not greater than 15% above Prevailing Market Price Alternate Process for Procurements of Apparel and Textiles

Emergency Contracts [State Finance Law §163(10)(b)] Procurements may be made to meet emergencies arising from unforeseen causes without using a formal competitive process. Such procurements shall be made only under unusual circumstances and shall include a determination in the procurement record of the nature of the emergency and that the procurement was conducted in a fair and equitable manner.

Single Source Single Source means a procurement in which although two or more offerors can supply the required commodities or services, the Commissioner or State agency, upon written findings setting forth the material and substantial reasons therefor, may award the contract to one offeror over all others. The Commissioner or State agency shall document in the procurement record the circumstances leading to the selection of the vendor, including the alternatives considered, the rationale for selecting the specific vendor and the basis upon which it determined the cost was reasonable.

Sole Source Sole Source means a procurement in which only one offeror is capable of supplying the required commodities or services

Multiple Awards [State Finance Law §163(10)(c)] The Commissioner or State agency may elect to award a contract to one or more responsive and responsible offerors provided, however, that the basis for the selection among multiple contracts at the time of purchase shall be the most practical and economical alternative and shall be in the best interests of the State, and further provided that the requirements set forth herein shall not preclude the Commissioner from establishing multiple award contracts for reasons including increased opportunities for small businesses to participate in State contracts.

The Commissioner of General Services may authorize purchases required by state agencies or authorized purchasers by letting a contract or by approving the use of a contract let by any department, agency or instrumentality of the United States government and/or any department, agency, office, political subdivision or instrumentality of any state or states. The Commissioner of General Services is authorized to let centralized Contracts for joint purchasing by New York State and any department, agency or instrumentality of the United States government and/or any state including the political subdivisions thereof; provided however that any entity incurring a liability under such contract shall be responsible for discharging said liability.

Under this authority, the State can recognize and use or be a part of contracts of other public purchasers. In most instances, these other government entities establish their agreements using competitive solicitations. This procurement methodology has proven to be a tool that provides a means to meet special requirements or to efficiently and economically meet the needs of State agencies and Authorized Users. Note: These contracts and purchases also need to be supported by a procurement record and are subject to OSC approval.

Piggybacking Agreements have provided for imaging systems, landscape furniture and mission specific consultant services such as Year 2000 programming. Joint Agreements have provided for pharmaceuticals (Minnesota Multi-State) and traffic cones (New England States and New York).

Process for Conducting Procurements
DEVELOPING THE PROCUREMENT Determination of Need Form, Function & Utility Decisions For Centralized Contracts Discretion of OGS Commissioner - “in cooperation with State Procurement Council and state agencies,” Criteria which OGS uses includes, but is not limited to: i. availability of a volume discount; ii. prior use of the commodity among state agencies; iii. relative cost of establishing the contract; iv. anticipated use; and v. expected actual savings for the state.

Drafting & Issuing Agency Contracts IFB vs. RFP NYS Contract Reporter Advertisement Required if Contract Value Over $15,000 [Article 4C Economic Development Law] Receipt of offers minimum of fifteen business days after notice published Appendix A (Standard Clauses for State Contracts)

Drafting & Issuing the Document Appendix B (OGS General Specifications for Procurement Contracts) Non-Collusive Bidding Certificate MacBride Certification

Discretionary Thresholds for Purchasing State Agencies Up To $15,000 State Agencies Up To $50,000: For Recycled Commodities or technology For Remanufactured Commodities or Technology From Small Businesses From Certified Minority/Women-Owned Business Enterprises

Use of Mini Bids Another competitive solicitation technique employs multiple contract awards where vendors present their qualifications and agree to standard terms and conditions for a multiple year contract term with not to exceed prices – backdrop contracts. State agencies and Authorized Users present their technical needs to a pool of qualified contractors (“Project Definition” or “Mini Bid”) choosing the best value solution. This allows the purchaser to focus on meeting their operational or functions requirements and cut down on the contract cycle time often reducing the procurement time to weeks rather than months.

Use of Mini Bids Computer Consulting, Systems Integration and Training Agreements with categories of services Telephone Systems and Maintenance Third Party Financing Services Microcomputer Systems

Bid Evaluation & Approvals Responsive Offeror Material vs. Non-Material Deviations Clarifications, revisions, discussions, where provided in the solicitation

Bid Evaluation & Approvals (cont’d) Responsible Offeror Due Diligence Due Process Prior Contract History No debarment in NYS, other than for prevailing wage rate or labor law violations

Vendor Responsibility Due Process and the Opportunity to be Heard Procurement determinations arising from the need to ascertain the responsibility of a vendor/bidder impose a duty on the State agency to provide an opportunity to be heard It is the policy of the Office of General Services’ (OGS) Procurement Services Group (PSG) to provide vendors with an opportunity to administratively resolve complaints or inquiries related to PSG bid solicitations or contract awards. Bidders are encouraged to seek resolution of complaints through consultation with PSG staff. All such matters will be accorded impartial and timely consideration.

Bid Evaluation & Approvals: Bid Protests No statutory right Commissioner’s responsibility to make an award consistent with procurement laws. Elements of defensible decisions

Bid Evaluation & Approvals Required Approvals a. Department of Law b. Specialty Contracts: i. Civil Service ii. Office for Technology iii. Division of the Budget c. Office of the State Comptroller

Selection and Contract Award Using Bid Documents for Contract Award Negotiate Contract

OTHER RELEVANT LAWS Brief Summary Section 112 State Finance Law OSC Approval Section 97-g State Finance Law Centralized Services Section 138 State Finance Law Non-Assignment of State Contracts Section 139-d State Finance Law Non Collusion by Bidders Section 144-a State Finance Law Rock Salt Preference Section 220 and 240 Labor Law Prevailing Wage Rates Article 2 Uniform commercial Code Sales

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