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Joint Assessment of Public Supply Chain Management in South Africa

Country/ Location of the position South Africa
Status/Reference FWC
Agency/Donor EU
Experts E1 Supply Chain Management / Procurement Expert
Start + duration of project 25/06/2012 To: 30/11/2012
Duration of mission E1 100 working days
Required language Fluent in English (written, spoken, understanding)
Deadline June 16, 2012 Recruitment starts immediately upon publication of this vacancy announcement, posts may be filled already before the indicated application deadline.
ToR If not shown in the section ToRs of this announcement the ToRs are available only for shortlisted experts
Eligible Nationalities all
Observations • Only short listed consultants will be replied to.
• Please apply only if you fulfill all requirements for the vacant position
• All experts must have at least regional experience
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Profile: Supply Chain Management / Procurement Expert

Categoy of expert Senior (at least 10 years of experience)
Duration 100.00 working days

Requirements
This expert should have an education equivalent to a Masters Degree in Economics and/or Financial Management and/or Supply Chain Management/Procurement or an equivalent qualification, and 10 years general experience relevant to the assignment. A qualification as a Chartered Accountant, Chartered Management Accountant or Certified Auditor will be seen as equivalent to a Masters degree.

In the absence of a Masters Degree, a Bachelors Degree in Economics and/or Financial Economics and/or Public Financial Management and/or Supply Chain Management/Procurement or field relevant to this assignment, and 15 years working experience in the sectors directly or indirectly related to Lot 11 are required.

Additionally, this expert should have:
Experience in assessing public financial management systems, and specifically, public sector procurement or supply chain management. Knowledge of the South African system or a country / region with similar PFM systems, structures and processes will be an advantage.
Experience of the implementation of programmes in public sector capacity development and improvement of PFM;
Experience in the implementation of the PFM legislation, policy, regulations and/or reforms.

EC rules applicable to any EC assignment
• Working days are from Monday to Friday, if not indicated otherwise in the ToR
• Per diem covers all expenses of the expert (local transport, hotel, meals, telecom,
etc) and it is only paid if the expert stay overnight.
• International travel: the EC only reimburse economy class flight tickets
Terms of Reference

Technical Expert to assist with a Joint Assessment of Public Supply Chain Management in South Africa
1. BACKGROUND

The National Treasury fulfils a pivotal role in the implementation and management of the Public Finance Management Act (PFMA) No 1 of 1999 as well as the Municipal Finance Management Act (MFMA) No 56 of 2003. The essence of both these Acts is to regulate financial management in the public sector at national and provincial levels and municipal level respectively. The PFMA as well as the MFMA are intended to ensure that all revenue, assets, liabilities and expenditures are managed effectively and efficiently and that the responsible officials are equipped with appropriate and necessary knowledge to adhere in a compliant manner to the intentions stipulated in the respective Acts.

Government has prioritised the transformation of the public sector to enable it to meet the needs of the people and the objectives of the Reconstruction and Development Programme (RDP). Given the enormous demand for services and the limited resources available to satisfy that demand, all available resources must be used as effectively and efficiently as possible. Government is determined to modernise the management of the public sector to make it more people friendly and sensitive to the communities it serves. Budgetary and financial reforms were initiated soon after the 1994 elections.

The first phase of reforms began with the introduction of a new intergovernmental system, which required all three spheres to develop and adopt their own budgets (decentralised budgeting). This was complemented by a system of significant transfers to provinces and municipalities. In addition, multi-year budgeting through the Medium-Term Expenditure Framework (MTEF) was introduced in 1997/98 to replace the one-year incremental system. The final elements in this phase of reforms were to deepen the budget process and better align policy, planning and budgeting.

The introduction of the PFMA and MFMA in the early 2000’s heralded the focus on operational efficiency of the public sector as well as the modernisation of the systems of financial management in the public sector. Several of the divisions in the National Treasury have contributed in recent years to continued financial management improvement processes and the divisions such as the Budget Office, Public Finance, Intergovernmental Relations and Office of the Accountant-General have been at the forefront of this process. The Financial Management Improvement Programme (FMIP) Phase I and II, a partnership programme of the National Treasury and the European Union have over recent years provided direct support to divisions within National Treasury in improving the efficiency of managing the Government’s finances.

It is widely accepted that reforms in South Africa at the legislative and policy levels have provided a framework conducive for improving financial management at national, provincial and local levels respectively. At the same time, it is evident that a huge skills gap exists within financial management cadres of the public service to implement the applicable legislation, policies and procedures to an acceptable level. A crucial element on government’s financial management reform agenda would be to strengthen the individual as well as institutional capacity of financial management practitioners/government entities as well as the capacity of other officials involved in PFM in South Africa.

Accordingly, the National Treasury developed a comprehensive Capacity Development Strategy (CDS) for Public Financial Management. The strategy provides a national perspective to address financial management capacity constraints in the public sector. These challenges include scarce skills; high levels of vacancies and staff turnover; a lack of suitable education, training and development programmes; limited knowledge management; inadequate monitoring and evaluation; ineffective performance management; non-adherence to legislation; poor audit results; and an absence of effective partnerships. Moreover, the strategy sets out four strategic objectives to address this challenge:
 Support the development of an enabling environment
 Enhance organisational capacity
 Develop and empower a corps of competent and committed high-performance employees
 Create an environment that enables and sustains mutually beneficial stakeholder relationships

In the continued implementation of the CDS, the South African Government is keen to continue partnering with the international donor community. Historically various donor institutions performed their own individual assessments on the South African PFM system in order to determine the viability and specific focus of the monetary assistance. This was often done despite the availability of valid and reliable assessment data gleaned from intensive self-assessment tools such as the Financial Management Capability Maturity Model (FMCMM).

The Public Finance Management Act, 1999 (PFMA, Act 1 of 1999), as amended by Act 29 of 1999, was approved by Parliament and promulgated in March 1999 to regulate financial management in the national Government and provincial Governments, to ensure that all revenues, expenditures, assets and liabilities of Government are managed efficiently and effectively and to provide for the responsibilities of persons entrusted with financial management in those Governments. Furthermore, a Preferential Procurement Policy Framework (Act 5 of 2000, PPPFA) prescribed by the Constitution (s. 217) stipulates a procurement system that must be fair, equitable, transparent, competitive and cost-effective and allow preference to Historically Disadvantaged Individuals (HDI’s). Supporting regulations (i.e. Preferential Procurement Regulations) were issued in terms of the PPPFA and published on 10 August 2001.

During 2001, in collaboration with the World Bank, the Supply Chain Management (SCM) Unit at National Treasury completed a Joint Country Procurement Assessment Review (CPAR), which assessed procurement practices throughout the public sector. The CPAR identified certain deficiencies in current practices relating to governance aspects and the interpretation and implementation of the PPPFA and its associated Regulations (issued in 2001). During 2002 and the early part of 2003, the National Treasury developed a Policy Strategy to Guide Uniformity in Procurement Reform Processes in Government in conjunction with provincial treasuries. The policy strategy is to support the issuing of a regulatory framework aimed at promoting sound financial management and uniformity in implementation of procurement reform initiatives in all three spheres of Government.

Implementation of the strategy will promote uniformity in the different spheres of Government in repealing tender board legislation and give effect to the PFMA’s intent to devolve responsibility and accountability for procurement-related matters to accounting officers. It will enhance common interpretation and understanding of preferential procurement and related legislation and policies and introduce an integrated SCM function and system for the appointment of consultants.

A number of research reports, as well as the Auditor General Annual Reports, highlight an increase in fruitless and wasteful expenditure, unauthorised expenditure, non-adherence to PFMA and related regulations, and unacceptable high qualified opinions. Furthermore, a recent small-scale survey by the Public Service Commission (2010) found that despite the legislative and policy prescripts implemented by government to manage the risks of fraud and corruption in SCM/Procurement, incidents of financial mismanagement, which includes SCM processes, remain prevalent in the Public Service. The evaluation identified major shortcomings in the application of the SCM policies, procedures and controls as well as a lack of thorough and comprehensive documentation of the approval of reasons for deviations from SCM procedures. One of the key recommendations made by the PSC is that departments should prioritise on-going training, education and communication of the relevant SCM processes and procedures.

During a recent Donor Coordination Forum meeting, a consultative forum comprising of National Treasury and all international donor institutions in South Africa, it was agreed that there is a need for a coordinated and streamlined joint assessment. Furthermore, it was resolved that the initial focus or the first phase of the joint assessment would be on Supply Chain Management in the Public Service, with more specific reference to the National Department of Health, as well as four selected provincial Departments of Health (Eastern Cape, Limpopo, Mpumalanga and Northern Cape). The recent Financial Management Capability Maturity Model (FMCMM) results underscore that service delivery is severely hampered in the public health and education sectors as a result a gaps in the implementation of SCM policies and procedures.

This Terms of Reference seeks to solicit the services of a Technical Expert that would assist in the crafting and implementation of a joint assessment of the South African Supply Chain Management system, as it relates to the National Department of Health and selected provincial departments. The expert will work together with two experts appointed by the World Bank Institute and USAID on this assignment.
2. PURPOSE

To overall objective of this assignment is to undertake an assessment of public supply chain management, based on available assessment methodologies, in terms of the legislative environment, institutional aspects (organisational and human capacity), market practices and probity of the system.

This assessment will be done jointly guided by National Treasury and key development partners and will enable the South African Government and the donor community to:
 Analyse and evaluate the strengths of the public supply chain management system;
 Evaluate the various public finance assessment methods and tools employed by donor institutions and government;
 Harmonize assessment methods and tools used by government and various donor agencies;
 Reduce transactional cost related to PFM evaluations, and
 Reduce economies of time and effort of the application of different PFM assessment methodologies.
2.1. Scope of work

The specific objectives of the assignment will be to:

(i) Review and understand the legal-, institutional- and market practices relating to supply chain management in South Africa;
(ii) Using the Joint SCM Assessment Tool currently being developed, participate in the joint assessment of the National and selected Provincial Departments of Health;
(iii) Analyse the results of the assessment to draft a supply chain management improvement programme for the Health Sector;
(iv) Draw on the wealth of consultations and analysis to propose future areas of joint assessments.

Importantly, this assignment will form part of a joint assessment funded by the EU together with the World Bank Institute and USAID. The experts appointed by the latter two development partners have the responsibility to

(i) Analyse and evaluate the various assessment methods and tools of both the donor institutions and the South African Government, specifically as it relates to SCM;
(ii) Consult with various role players in National Treasury and the donor community;
(iii) Design and develop a joint assessment that encompasses legislative, institutional, market practices and probity of supply chain management systems with focus on organisational and human resources capacity determinants on the maturity/effectiveness of the implementation of the system;
(iv) Present a draft joint assessment tool to key stakeholders to include government and donor agencies for comments and agreement;

The contractor will be expected to provide critical inputs to the above where deemed necessary. This is necessary to ensure that the expert understands the relevant environment in which the assessment will take place, as well as to establish a deep understanding of the assessment tool.
2.2. Required outputs

The following outputs are required:
(i) An inception report
(ii) A Joint SCM Evaluation Report from a pilot assessment of the National Department of Health and the selected provincial Departments of Health (Eastern Cape, Limpopo, Mpumalanga and Northern Cape).
(iii) A draft final and final report summarising the process, tools and evaluation results for the assignment, as well as key recommendations for future joint assessments.
(iv) A workshop will be arranged by the expert with key involved stakeholders to discuss the outcomes of the pilot assessment.
3. EXPERTISE REQUIRED

One (1) senior expert is required. The expert must be results-driven and an energetic team player that will be able to negotiate the multiple demands and pressures of the project. Moreover, he/she should be fluent in written and oral English and must be computer literate and have excellent technical writing skills.

Expert 1: Supply Chain Management / Procurement Expert

This expert should have an education equivalent to a Masters Degree in Economics and/or Financial Management and/or Supply Chain Management/Procurement or an equivalent qualification, and 10 years general experience relevant to the assignment. A qualification as a Chartered Accountant, Chartered Management Accountant or Certified Auditor will be seen as equivalent to a Masters degree.

In the absence of a Masters Degree, a Bachelors Degree in Economics and/or Financial Economics and/or Public Financial Management and/or Supply Chain Management/Procurement or field relevant to this assignment, and 15 years working experience in the sectors directly or indirectly related to Lot 11 are required.

Additionally, this expert should have:
 Experience in assessing public financial management systems, and specifically, public sector procurement or supply chain management. Knowledge of the South African system or a country / region with similar PFM systems, structures and processes will be an advantage.
 Experience of the implementation of programmes in public sector capacity development and improvement of PFM;
 Experience in the implementation of the PFM legislation, policy, regulations and/or reforms.
4. DURATION AND LOCATION

The assignment will be executed over a period of 25 weeks, starting indicatively on 25 June 2012 to 30 November 2012. The expert will be expected to work for a minimum of 100 days during this period. All outputs need to be delivered by 9 November 2012. The assignment will be executed over 139 calendar days (days for travelling purposes included).

A mobilisation and briefing meeting will be held in Pretoria at the start of the assignment. The assignment will be mainly executed in Pretoria, South Africa, where the National Treasury and the National Department of Health are situated.

The following indicative schedule will apply:
Action Schedule (working days) – Team Leader Dates of milestones – 2012
1. Travel & Inception Meeting 1 25 June
2. Inception Report 4 30 June
3. Consultation with role-players ongoing June – July
4. Joint Assessment of pilot departments (national and provinces) 60 21 September
5. Analysis of assessment results 20 19 October
6. Recommendations and draft close-out report 10 2 November
7. Final Report 5 9 November
Total 100

For the purpose of this contract, experts have the permission to work during weekends and public holidays, as required for delivering the requested services. This arrangement will be confirmed at the inception report acceptance stage.

The budget should make provision for:

• International travel
• Local travel (i.e. inter-city travel)
• Services related to the workshop (not more than € 500). This includes consumables and services related to the hosting and logistics of the workshop, such as catering, reproduction of material, etc.
• Per diems
5. REPORTING

All outputs as indicated in Section 2.2 of this ToR must be presented in an agreed format. The Inception Report should be between 5 and 10 pages, excluding annexes. The Final Report should not exceed 120 pages, excluding annexes, and should also include an Executive Summary. All outputs should be drafted in English, and prepared with MS Office software.

Each output shall be presented to the parties involved, namely the National Treasury: Office of the Accountant-General and the European Union Delegation to South Africa.

Comments on the draft outputs will generally be provided within 5 working days. The submission and the approval of the final report will define the end date of the assignment.

The following information should be noted on the final reporting:

FINAL REPORT
Title Technical Expert to assist with a Joint Assessment of Public Supply Chain Management in South Africa
Language English
Date of delivery 30 November 2012
Recipient EU Delegation in Pretoria
Responsible Mr Gerhard Pienaar, Programme Officer: Public Financial Management
Copies to submit 5 hard copies + electronic copy
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