The overall objective of this paper is to shed light on the main issues related to procurement
of goods and services for electoral processes, with particular attention towards the
procurement of goods and services related to the introduction or upgrading of ICTs in
these processes (especially in relation to voter registration).
The initial argument highlighted the importance of procurement planning as well as the
integration of procurement plans and strategies in the programme formulation stage as
an integral part of the wider electoral cycle approach. Notwithstanding the importance
of these activities, the procurement planning phase has thus far arguably not received
enough attention. The unawareness of procurement planning stands in stark contrast
to the actual importance of and costs related to procurement issues including pilot and
validation testing.
As mentioned throughout the paper, any delay or shortfall in the procurement or
distribution of materials could have serious implications for the rest of the voter registration
or electoral schedule, thus potentially affecting the outcome of the voter registration or
election, or even be the reason that the voter registration or election is not implemented
at all. With a well-defined procurement plan at hand, the electoral assistance project/
programme is more likely to achieve appropriate identification of needs and strategies,
analysis of associated risks and supply chain management constraints, and assessment
of implementing partners’ capacity facilitating proper management arrangements and
appropriate types of engagement.
The footprints of the ICTs revolution are particularly strong in the electoral field: ICTs have
dramatically changed the way elections are conducted not only in democratic states, but
also in post-conflict states and emerging democracies. Consequently, when it comes to
decide how to tackle the increasing use of ICTs in electoral processes, all stakeholders
in a given electoral process, including development partners in the context of electoral
assistance projects, has an important role to play in influencing the technological choices
to be adopted.
Being among the most crucial and expensive undertakings, as well as within area where
the influence of ICTs applications is growing the most, requests of electoral assistance
for voter registration processes is particularly important. More and more countries are
requesting assistance to introduce and use biometric features in voter registration
processes, especially using Automated Fingerprint Identification Systems (AFIS) in the
hope of enhancing the sustainability and credibility of their voter registers.
For successful support to technological upgrade to voter registration processes, electoral
assistance providers need to acquire a better understanding of procurement planning and
strategy for the purchase of goods and services for the implementation of, in particular,
biometric voter registration systems. This relates essentially to procurement requirements
and selection of the adequate level of technology, development of comprehensive
technical specifications, appreciation of associated risks, timely procurement and an
appropriate allocation of resources.
When it comes to specific issues related to procurement for biometric voter registration,
there are several issues that need to be confronted:
- First of all, • IT Specialist(s) need to be hired that have substantial adequate
experience and knowledge in this area
- Secondly, consideration should be allowed with regards to local versus
international competition for contracts, emphasizing the importance of
supporting local industrial development through, for example, the organisation
of a pre-bid conference, although also analyzing potential technology or
resource limitations of the local environment, security and stability in the
region, among others
- Thirdly, to increase sustainability when purchasing ICTs solutions, it is
important to apply already existing international ICTs standards and practises
which support inter-operability. This reduces potential risks since it facilitates
specification and understanding of requirements, secures minimum required
performance or quality, simplifies integration, allows for substitution and
upgrade of technologies, and reduces “vendor lock-in” effects. This can eventually
lead to a broader range and availability of products and movement towards
commoditisation of the technology, and increases more focus on technology
transfer and ownership of EMBs rather than on total outsourced solutions
- The fourth and fifth procurement considerations relate to the rather selfexplanatory
issues of security and cost-effectiveness. Regarding the latter, all
costs related not only to the actual purchase of the item or service but also to
expenditures such as, for example, add-on equipment, installation, maintenance
and troubleshooting, warehousing, security, documentation, procedures and
staff training should be taken into accent. Sixth, the establishment of a disaster
recovery site (DRS) encompassing a duplicate IT setup in case of fire, sabotage
or other disaster situation should be considered
Finally, there is a need to look into the total solution, build-operate-transfer methodologies
versus technology transfer to the EMB. “Total solutions” mean the provider controls the process from end to end. “Technology transfer,” on the other hand, means that at
the end of the process, the EMB is capable itself of repeating the process without (too
much) external assistance. While technology transfer is often desirable, it is not always so
because outsourcing of certain functions and services may be under some circumstances
more efficient. When transfer prevails, factors related to project management, costing and
sustainability need to be carefully analyzed.
More generally, as the election process and the electoral assistance project proceeds,
the procurement plan needs to be adjusted according to current developments, thus
emphasizing the procurement plan as a living and flexible document available for updates
and modifications.
As with procurement processes for elections in general, the delay or shortfall of procurement of
goods and materials related to voter registration processes may affect the outcome of the voter
registration process itself and also impede on the overall electoral schedule and process.
Through its daily project/programmatic work, UNDP is heavily involved in electoral
procurement and key issues identified throughout the paper rely primarily on experiences
and lessons learned drawn from UNDP-managed basket funds with important
contributions of the European Commission and/or EU Member States.
Through the Global Procurement Unit (GPU) as part of UNDP PSO advisory services and
direct procurement support are made available to UNDP Country Offices and EMBs. GPU
is part of the Joint EC-UNDP Task Force providing continuous assistance to UNDP Country
Offices and EMBs in procurement planning and budgeting, on-site training and, in many
cases, targeted exploratory, formulation and assessment missions relating to procurement
and operations for each step of the electoral cycle.
Moreover, UNDP Long Term Agreements (LTAs) have been established to ensure efficiency
in the procurement process, including turn-around times that comply with UNDP rules
and regulations and quality of procured goods and services. Given the current role of
ICTs in electoral processes in both emerging democracies and post-conflict states, the
strategic focus of GPU for the immediate future is to increase the scope of LTAs and other
procurement tools to address systems including items of higher level of technology,
higher production complexity and higher security requirements.
Over the last decade, electoral assistance practitioners and the donor community have
experienced great opportunities, but also coped with substantial challenges in formulating
and implementing projects and programmes seeking to introduce or upgrade ICTs usage
in electoral processes. Some best practices have thus already been identified:
- There is a need to carry out feasibility studies to uncover and analyze information
that will subsequently support the detailed planning and formulation of
projects and programmes encompassing ICTs components
-
Study tours aimed at spreading knowledge of existing practices can lead to
substantial exchange of comparative experiences between practitioners and
EMBs
- High-quality technical specifications that take on board comparative
experiences and practices and which adapt to the needs and requirements of
the specific context in question are essential
- ICTs equipment, including hardware and software, needs to be legally
supported and/or adapted to the specific legal context of the country
- Timely implementation of ICTs materials and services for electoral purposes
is crucial – gradual introduction should be put into practice between 6-12
months prior to election day at the minimum, thus allowing for procurement,
testing, management, training of staff, etc.
- Considerations with regards to cost-efficiency and sustainability need to
be mainstreamed throughout the project/programme phases, which also
underline the importance of immediate and long-term goals of the work
carried out by assistance providers and EMBs in this specific field
- Pilot testing, validation testing and mock voter registration exercises need to be
included in the procurement plans and organized in order to add transparency
in the procurement process and to test the effectiveness of data capturing
- Civic and voter education efforts need to take on board the new developments
with regards to ICTs in electoral processes to ensure public trust in the use of
those materials
-
Synergy effects between voter and civil registries should be sought in order to
take full advantage of existing resources
- An extension of the length of operations must often be considered when hightech
solutions for voter registration are implemented
