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UNITED NATIONS

PROCUREMENT MANUAL

DEPARTMENT OF OPERATIONAL SUPPORT

OFFICE OF SUPPLY CHAIN MANAGEMENT

PROCUREMENT DIVISION

REF. NO.: DOS/2020.9

30 JUNE 2020

DOS/2020.09 United Nations Procurement Manual 1

Preface

provides further guidance for carrying out procurement activities for the UN effectively and efficiently in

such as the Review Committee on Contracts ST/AI (ST/AI/2011/8). This document is available online at https://www.un.org/Depts/ptd/about-us/procurement-manual. It has been published in electronic format to limit the use of paper, ink, and transport. The Procurement Division in the Office of Supply Chain Management, Department of Operational Support will update this Manual from time to time.

DOS/2020.09 United Nations Procurement Manual 2

Preface ..............................................................................................................................................1

1. Introduction ............................................................................................................................. 10

1.1 Purpose, Application and Structure ............................................................................................. 10

1.2 Update and Maintenance ............................................................................................................. 10

1.3 Procurement Framework ............................................................................................................. 10

1.4 Procurement Principles and Client Centricity .............................................................................. 11

1.4.1 Best Value for Money ............................................................................................................ 11

1.4.2 Fairness, Integrity and Transparency ..................................................................................... 12

1.4.3 Effective International Competition ...................................................................................... 12

1.4.4 Best Interest of the United Nations ....................................................................................... 13

1.4.5 Client Centricity ..................................................................................................................... 13

1.5 Ethical Standards .......................................................................................................................... 13

1.5.1 Standards of Conduct ............................................................................................................ 13

1.5.2 Conflict of Interest ................................................................................................................. 14

1.5.3 Ethical Behavior of Vendors ................................................................................................... 16

2. Organization of Procurement .................................................................................................... 17

2.1 Overview of the Procurement Process ......................................................................................... 17

2.1.1 Definition of Procurement ..................................................................................................... 17

2.1.2 Outline of the Procurement Process ..................................................................................... 17

2.1.3 Category Management .......................................................................................................... 18

2.2 Responsibilities of Organizational Units and Key Roles for the Procurement Process ................ 19

2.3 Procurement Official .................................................................................................................... 20

2.4 Requisitioner ................................................................................................................................ 21

2.5 Procurement Approving Authority ............................................................................................... 22

2.6 Procurement Authority ................................................................................................................ 22

2.6.1 Delegation of Authority ......................................................................................................... 22

2.6.2 Exercise of DOA...................................................................................................................... 23

2.6.3 Procuring Agent ..................................................................................................................... 23

2.6.4 Local Procurement Authority (LPA) ....................................................................................... 23

2.7 Delegation for Amendments ........................................................................................................ 26

2.7.1 Increase of the NTE Subsequent to Review Committee (20% Rule) ..................................... 26

2.7.2 Extension of Duration of a Contract Subsequent Review Committee (8-Month Rule) ......... 27

2.7.3 Contract Awards .................................................................................................................... 27

DOS/2020.09 United Nations Procurement Manual 3

2.7.4 Calculation of Cumulative Amounts for Assessment of Required DOA ................................ 27

2.8 Accountability ............................................................................................................................... 27

2.9 Segregation of Duties ................................................................................................................... 28

3. Vendor Registration and Management ...................................................................................... 30

3.1 Vendor Registration ...................................................................................................................... 30

3.1.1 Registration in UNGM ............................................................................................................ 30

3.1.2 Synchronization in UMOJA .................................................................................................... 31

3.1.3 Overview of Registration Levels ............................................................................................ 31

3.1.4 Criteria for Vendor Registration ............................................................................................ 32

3.2 Vendor Management ................................................................................................................... 35

3.2.1 Evaluation of Vendor Registration Applications .................................................................... 35

3.2.2 Vendor Registration Maintenance and Updating of Vendor Documentation....................... 35

3.2.3 Updating of Vendor Information ........................................................................................... 36

3.3 Vendor Review Committee .......................................................................................................... 36

3.4 Review by the Vendor Review Committee ................................................................................... 37

3.5 Vendor Sanctions .......................................................................................................................... 38

3.6 Electronic Special Approval Committee (e-SAC) .......................................................................... 39

4. Demand Planning, Acquisition Planning, Procurement Strategy and Requirements Definition .... 41

4.1 Demand Planning and Acquisition Planning ................................................................................. 41

4.2 Procurement Strategy .................................................................................................................. 42

4.3 Procurement Planning and Source Selection Plan ....................................................................... 42

4.4 Requirements Definition .............................................................................................................. 44

4.4.1 The Purpose of Requirements Definition .............................................................................. 45

4.4.2 Characteristics of Well-Defined Requirements ..................................................................... 46

4.4.3 Technical Specifications ......................................................................................................... 47

4.4.4 Terms of Reference (TOR) ..................................................................................................... 47

4.4.5 Statement of Work (SOW) ..................................................................................................... 48

4.5 Shopping Cart ............................................................................................................................... 48

5. Sourcing ................................................................................................................................... 49

5.1 Sourcing of Vendors ..................................................................................................................... 49

5.2 Market Research .......................................................................................................................... 49

5.3 Advertisement for Business Opportunities .................................................................................. 50

5.4 Request for Information (RFI) ....................................................................................................... 51

5.5 Request for Expression of Interest (REOI) .................................................................................... 51

5.6 Pre-Qualification of Vendors ........................................................................................................ 52

DOS/2020.09 United Nations Procurement Manual 4

5.7 Creation of Lists of Invitees .......................................................................................................... 53

5.8 Approval of List of Invitees ........................................................................................................... 53

5.9 Amendment of List of Invitees ..................................................................................................... 53

6. Solicitation ............................................................................................................................... 55

6.1 Overview ....................................................................................................................................... 55

6.2 Competition .................................................................................................................................. 55

6.2.1 Effective International Competition ...................................................................................... 55

6.2.2 Special Considerations for List of Invitees ............................................................................. 56

6.2.3 Risk of Collusion ..................................................................................................................... 56

6.3 Solicitation Methods ........................................................................................................................ 56

6.3.1 Formal Methods and Informal Methods ............................................................................... 56

6.3.2 Low Value Acquisition (LVA) .................................................................................................. 57

6.3.3 Request for Quotation (RFQ) ................................................................................................. 60

6.3.4 Invitation to Bid (ITB) ............................................................................................................. 61

6.3.5 Request for Proposal (RFP) .................................................................................................... 61

6.4 Solicitation Documents................................................................................................................. 64

6.4.1 Overview ................................................................................................................................ 64

6.4.2 Letter of Invitation ................................................................................................................. 65

6.4.3 Annex A: Acknowledgment Letter ......................................................................................... 67

6.4.4 Annex B: Scope of Work/Requirements ................................................................................ 67

6.4.5 Annex C: Special Instructions and Evaluation Criteria ........................................................... 68

6.4.6 Evaluation Criteria (i.e., Part of Annex C) .............................................................................. 72

6.4.7 Requisite Forms/Schedules for Bidders ................................................................................. 76

6.4.8 Bid/Advance Payment/Performance Security Form and Requirements ............................... 76

6.4.9 Form of Contract and UN General Conditions of Contract .................................................... 78

6.5 Invitation of Vendors .................................................................................................................... 78

6.6 Amendments to Solicitation Documents ..................................................................................... 79

6.7 Cancellation of the Solicitation Process ....................................................................................... 80

6.8 Direct Contracting Under Sole Source .......................................................................................... 80

6.9 Solicitation of Offers Against LTAs................................................................................................ 81

6.10 Communication with Vendors ...................................................................................................... 81

6.11 Exceptions to Formal Methods of Solicitation ............................................................................. 82

6.11.1 No Competitive Marketplace ................................................................................................. 82

6.11.2 Fixed Prices or Rates .............................................................................................................. 82

6.11.3 Proprietary Product or Service .............................................................................................. 82

DOS/2020.09 United Nations Procurement Manual 5

6.11.4 Previous Determination or need for Standardization ........................................................... 83

6.11.5 Cooperation ........................................................................................................................... 83

6.11.6 Identical Requirements .......................................................................................................... 84

6.11.7 No Satisfactory Results from Previous Formal Methods of Solicitation ................................ 84

6.11.8 Real Estate ............................................................................................................................. 84

6.11.9 Exigency ................................................................................................................................. 85

6.11.10 Services Cannot Be Evaluated Objectively ............................................................................. 85

6.11.11 Formal Methods Will Not Produce Satisfactory Results ........................................................ 85

6.11.12 Below Monetary Threshold ................................................................................................... 86

7. Management of Submissions .................................................................................................... 87

7.1 Tender Opening Committee ......................................................................................................... 87

7.2 Receipt and Safeguarding of Submissions .................................................................................... 87

7.3 Receipt and Safeguarding of Submissions Delivered by Hand, Courier or Mail ........................... 88

7.4 Receipt and Safeguarding of Facsimile Submissions .................................................................... 88

7.5 Receipt and Safeguarding of E-tendering or E-mail Submissions ................................................ 88

7.6 Modification of Submissions ........................................................................................................ 89

7.7 Withdrawal of Submissions ......................................................................................................... 89

7.8 Modification or Withdrawal of Submissions After Closing .......................................................... 90

7.9 Late Submissions .......................................................................................................................... 90

7.10 Unsolicited Submissions ............................................................................................................... 91

7.11 Opening and Recording of Submissions ....................................................................................... 91

7.12 Attendance at Tender Openings .................................................................................................. 91

7.13 Opening of Bids (ITBs) .................................................................................................................. 92

7.14 Opening of Proposals (RFPs)......................................................................................................... 92

7.15 Rejection of Submissions .............................................................................................................. 93

7.16 Post-Opening of Bids .................................................................................................................... 93

7.17 Post-Opening of Proposals ........................................................................................................... 93

7.18 Other Post-Opening Procedures .................................................................................................. 93

8. Evaluation of Submissions ........................................................................................................ 95

8.1 Overview ....................................................................................................................................... 95

8.2 Evaluation Committees ................................................................................................................ 95

8.3 Evaluation Criteria ........................................................................................................................ 97

8.4 Evaluation Methodologies ............................................................................................................ 97

8.4.1 Lowest Priced, Technically Acceptable Offer ......................................................................... 97

8.4.2 Lowest Priced, Substantially Conforming Bid ........................................................................ 98

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8.4.3 Cumulative/Weighted Analysis .............................................................................................. 98

8.5 Preliminary Screening ................................................................................................................... 99

8.6 Technical Evaluation ................................................................................................................... 100

8.7 Financial Evaluation .................................................................................................................... 100

8.8 Further Aspects of Evaluation .................................................................................................... 102

8.8.1 Clarifications from Vendors ................................................................................................. 102

8.8.2 Material Deviations ............................................................................................................. 103

8.8.3 Apparent Errors in Price ...................................................................................................... 104

8.8.4 Abnormally Low Offers or Submissions ............................................................................... 104

8.8.5 Evaluation by Lots ................................................................................................................ 105

8.8.6 Review of Offers Received in Situations of Direct Contracting or Sole Sourcing ................ 105

8.8.7 Complaints and Representations ......................................................................................... 105

8.8.8 Indications of Potential Proscribed Practices ...................................................................... 105

8.8.9 Best and Final Offer (BAFO) ................................................................................................. 107

8.9 Negotiations ............................................................................................................................... 109

8.9.1 Negotiations in Case of Sole Source .................................................................................... 110

8.9.2 Negotiation Strategy ............................................................................................................ 110

8.10 Final Evaluation and Recommendation for Award ..................................................................... 110

9. Review by Committees on Contracts ....................................................................................... 112

9.1 Mandate of Committee on Contracts ........................................................................................ 112

9.2 Thresholds for the Headquarters Committee on Contracts (HCC) ............................................. 112

9.3 Thresholds for Local Committees on Contracts ......................................................................... 113

9.4 Submission to Review Committees on Contracts....................................................................... 114

9.5 Facilitation of the Review by the HCC/LCC ................................................................................. 116

9.6 Ex Post Facto Presentations to Review Committees .................................................................. 116

10. Awards................................................................................................................................... 118

10.1 Award and Finalization ............................................................................................................... 118

10.1.1 Prototype Inspections .......................................................................................................... 118

10.2 Vendor Notification, Debriefing and Protest .............................................................................. 119

10.2.1 Posting of Awarded Contracts ............................................................................................ 119

10.2.2 Debrief Procedures ............................................................................................................. 120

10.2.3 Award Review Board ........................................................................................................... 121

11. Contract Finalization and Issuance Contractual Instruments .................................................... 122

11.1 Contract Finalization and Issuance ............................................................................................. 122

11.1.1 Contract Preparation ........................................................................................................... 122

DOS/2020.09 United Nations Procurement Manual 7

11.1.2 Letter of Intent ..................................................................................................................... 122

11.1.3 Contract Finalization Discussions with Vendors .................................................................. 122

11.1.4 Advance or Progress Payments ........................................................................................... 123

11.2 Performance Securities .............................................................................................................. 123

11.3 Signature, Issuance and Documentation .................................................................................... 124

11.4 Standard Contract Elements....................................................................................................... 125

11.4.1 Instrument of Agreement .................................................................................................... 125

11.4.2 General Conditions of Contract (UNGCC) ............................................................................ 126

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