Edmund Sim and Supprakanya Geschumpol Hunton & Williams Jane Drake-Brockman and Anna Plotkin
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Transcript of Edmund Sim and Supprakanya Geschumpol Hunton & Williams Jane Drake-Brockman and Anna Plotkin
Cost/Benefit Study of the Implications for
Thailand
of Greater Cooperation on
Government Procurement
With
Australia and New Zealand
Edmund Sim and Supprakanya Geschumpol
Hunton & Williams
Jane Drake-Brockman and Anna PlotkinMoulis Legal
Basic Government Structure
Australia
Basic Government Structure
Australia Federation of six States and two Territories Independent Constitution gives specific areas of responsibility
to Commonwealth (Federal) government States and Territories responsible for all matters
in their physical area of responsibility other than those set out in the Australian Constitution which are within the Commonwealth’s powers.
Basic Government Structure
Australia
Commonwealth GovernmentThe Department of Finance and Deregulation is the main body responsible for procurement policy at a Federal level.
Major Procurement Legislation Financial Management Act 1997: covers government agencies Commonwealth Authorities and Companies Act 1997: covers corporatised government agencies
Major Procurement Policies Commonwealth Procurement Guidelines: mandatory rules Guidance on Procurement Publishing Obligations
PublicationAusTender: www.austender.gov.au
States and Territory GovernmentsOwn systems of procurement, generally following the Commonwealth System
Basic Government Structure
AustraliaCommonwealth Departments
Dept. Finance and Deregulation Dept. Agriculture, Fisheries and
Forestry Dept. Attorney General Dept. Environment, Water,
Heritage and the Arts Dept. of Broadband,
Communications and the Digital Economy
Department of Prime Minister and Cabinet
Department of Treasury Department of Human Services Department of Education,
Employment and Workplace Relations
Department of Innovation, Industry, Science and Research
Department of Resources, Energy and Tourism
Department of Families, Housing, Community Services and Indigenous Affairs
Department of Health and Ageing Department of Foreign Affairs and
Trade Department of Immigration and
Citizenship Department of Infrastructure,
Transport, Regional Development and Local Government
New Zealand
Basic Government Structure
continued
Basic Government Structure New Zealand
Unicameral democracy
16 regions created by authority of central government
New Zealand Government The Ministry for Economic Development is the main body
responsible for procurement policy for the New Zealand Government
Major Procurement Policies Mandatory Rules for Procurement by Departments Policy Guide for Purchasers
Mandatory Rules for Procurement apply to core New Zealand Departments listed in the State Sector Act 1988 (NZ): apply to ‘core departments’ only
Basic Government Structure New Zealand
Core Departments
Archives New Zealand Crown Law Office Department of Building and Housing Department of Conservation Department of Corrections Department of Internal Affairs Department of Labour Department of the Prime Minister and
Cabinet Education Review Office Government Communications Security
Bureau Inland Revenue Department Land Information New Zealand Ministry of Agriculture and Forestry Ministry for Culture and Heritage Ministry of Defence Ministry of Economic Development Ministry of Education Ministry for the Environment
Ministry of Fisheries Ministry of Foreign Affairs and Trade Ministry of Health Ministry of Justice Ministry of Māori Development Ministry of Pacific Island Affairs Ministry of Research, Science and Technology Ministry of Social Development Ministry of Transport Ministry of Women's Affairs National Library of New Zealand New Zealand Customs Service New Zealand Food Safety Authority Serious Fraud Office State Services Commission Statistics New Zealand The Treasury New Zealand Police New Zealand Defence Force
Basic Government Structure New Zealand
Open Select/Selective Special/Limited Direct/by negotiation MULs Panels PPPs E-auction (Thailand): no equivalent in ANZ)
Types of Procurement
Types of Procurement
OpenFree competition if submission
complies with published invitation: all interested suppliers may submit a tender
Most widely publicisedSelect/Selective
Free competition amongst invited tenderers
Eg tenderers on a Multi Use List (MUL)
Types of Procurement
Special/LimitedLike Select Tendering (from WTO text)
Direct Sourcing/ by negotiationNot publicisedObtain quotes and negotiate with known
suppliers
Types of Procurement
Multi Use Lists Regulated by CPGs (for Australian Commonwealth
procurement) Operates like a non-specific tender: pre-
qualification In practice, expensive for suppliers, efficient for
the procuring entity No guarantee of contracts Doorway to Select Tendering Published on AusTender
Types of Procurement
Panels Established for services like legal, accountancy, design Established by open tender Include price for services for specified term No guarantee of contracts No further negotiation required
PPPs Covered by CPGs Additional approvals required
Agency Chief Executive/ Minister for Finance /Cabinet Most State/Territory based. Commonwealth will increase
use.
Procurement that is readily accessible to Thai Firms
Open tendering
MULs
(Select Tendering)
Thresholds for covered contracts
Basic principles of assessment
Basic rules for Open Tendering
Government Category/ notes AUD/NZ threshold
Thai Baht threshold*
Australia
Cth FMA bodies Non-construction AUD80,000 TB2.5million
Construction AUD9million TB281.8million
Cth CAC bodies Non-construction AUD400,000 TB12.5million
Construction AUD9million TB281.8million
NSW AUD150,000 TB4.7million
Victoria AUD102,500 TB3.2million
Queensland Not mandated
Western Australia AUD150,000 TB4.7million
South Australia (NB: must have approved acquisition plan for contracts AUD110,000 and up)
Not mandated
Aust. Capital Territory AUD100,000 TB3.1million
Tasmania AUD100,000 TB3.1million
Northern Territory (NB: can have select contract up to AUD250,000)
AUD50,000 TB1.6million
New Zealand
Core departments Non-construction NZD100,000 TB2.4million
construction NZD10million TB244.5million
Thailand
All government agencies
AU64,000NZ81,700
TB2million
Thresholds for Open Tenders
*exchange rate as at 4 August 2008
Basic rules for Open Tendering
Basic principles of assessment: Commonwealth (States and Territories)
Value for money All costs and benefits over life of contract Performance history/ risk
Free and fair competition Non-discrimination Foreign connection not itself relevant Subject to SME protection: 10% by annual value of
contracts of each entity
Basic rules for Open Tendering
Commonwealth (States/Territories) continued
Efficient, effective and ethical use of resources Avoid conflicts of interests Equal dealing: time/ extension of time/ correction of mistakes No gifts/ hospitality accepted
Accountability and transparency Publication on AusTender: Open Tendering and MULs Notification Full information All pre-conditions to be specified (eg inclusion on a MUL) Pre-conditions cannot include prior contracting with the
agency Performance and functional basis for requirements: not
description/ design. International standards where possible.
Basic rules for Open Tendering
Commonwealth (States/Territories) continued
Deadlines At least 25 days from notice of procurement At least 30 days for AusTender
Exemptions Motor vehicles Defence items Advertising Plasma fractionation
Basic rules for Open Tendering
Basic principles of assessment: New Zealand Publication of notices of intended procurement,
annual procurement plans and requests for tender/ MUL on GETS
Non-discrimination subject to full opportunity to local suppliers
Value for money No off-sets Departmental lists of preferred suppliers via GETS
Basic rules for Open Tendering( New Zealand) continued
Exemptions Public health Education welfare services
Basic procedures for States and Territories
NSW Policies, procedures, investigation of grievances:
by State Contracts Control Board, also NSW Treasury
Publication of tendering opportunities on https://tenders.nsw.gov.au/nsw/
Basic procedures for States and Territories
Victoria Central body: Victorian Government Purchasing
Board, delegates powers to departmental Accredited Purchasing Bodies
Publication of tendering opportunities on www.tenders.vic.gov.au and in business tenders section of Herald Sun newspaper each Wednesday
Basic procedures for States and Territories
Queensland Central body: Queensland Chief Procurement
Office and Procurement Board of Management Publication of tendering opportunities on
https://tenders.qld.gov.au/queensland/
Basic procedures for States and Territories
Western Australia Central body: State Supply Commission Publication of tendering opportunities on ‘GEM’
www.gem.wa.gov.au
Domestic Preferences
• Commonwealth Australia 10% by value of contracts granted per agency per year to
go to Australian or New Zealand SMEs
Small to Medium Enterprise: a fuzzy conceptAustralia Less than 20 employees (services) Less than 100 employees (manufacturers) Or less than 200 employees
New Zealand Less than 20 employees
Domestic Preferences
Australian States and Territories Plenty to target
some specific, some require local content or attempt to source locally
Dispersed so effect is less No preference schemes operate in Australian
Capital Territory
Domestic Preferences
New Zealand Non-discrimination principle applies but must not
deny full, fair, reasonable opportunity to domestic suppliers
ie. must give reasons for rejecting local supplier for contracts valued at NZ$100,000 or more: assistance from Manadatory Rules
Domestic Preferences
Thailand 3% price preference to domestically supplied
contracts for works 7% price preference to goods meeting TIS/ISO
9001 or TIS/ISO 9002 5% price preference to domestic products
registered with Ministry of Industry Must have Thai leading firm for services. If not
possible, 50% Thai personnel to be engaged on the project
Note: Tariffs provide additional protection
Thailand Allowed
Australia Not allowed, but past performance relates to ‘value for
money’ ( risk) Some States maintain registers with review procedures:
does not amount to blacklisting
New Zealand Not allowed
Blacklisting and Review Procedures
What is the GPA?
Where is Thailand now?
Not compliant with the GPA
WTO GPA
ANZ attitude to GPA
Australia
New Zealand
Towards the GPA continued…
Australia Australia-US FTA Australia-Chile FTA
New Zealand No commitments yet Will negotiate
ANZ attitudes to FTAs
The Economic Consequences
and
Commercial Implications
of reforming
Government Procurement
in Thailand
First; the Economics
• We need to impose some economic discipline because “you cant manage what you can’t measure”
• Can we construct a useful economic model?
• How can we estimate the economic benefits we might obtain if we reform Government Procurement practices in Thailand?
• How significant are our results?
A Simple but Powerful Model
• We don’t need to start with complex econometrics• In any case we don’t have much data • Lets keep it simple and think about this together• Government Procurement accounts for roughly 15
percent of the Thai economy. 15% is a very big number
• So we know immediately that any efficiency gain we can achieve, will necessarily have a big impact on the economy
• What kind of efficiency gains might we be able be find?
• Having looked at the Thai system and compared it with practice elsewhere, we think that reform of the Thai system could readily generate, over a short period, a 10% improvement in “Value-for-Money”
• A 10% improvement across 15% of Thai GDP is worth an extra 1.5% of Thai GDP
• A 1.5% increase is a very significant boost to Thai productivity and economic growth
• The economic logic to a 1.5% gain in GDP growth would be overwhelming - wouldn’t it?
• (And Thailand could do this unilaterally, independently of any trade negotiation, if it chooses to)
• So where did we find this 10 % efficiency gain we have “assumed” is possible
• Before we look too deeply, there is one very obvious source of prospective efficiency gain (“low hanging fruit”)
• We know that the Thai Government automatically provides a price margin for all local suppliers of Thai goods - in the range of 3% to 7%.
• Lets deliberately estimate this at the low end and call it an average price margin of 5%. We can readily extrapolate this to the services sector (where the local preference is provided by a quantity rather than a price measure)
• I think you can see that this 5% price reduction across 15% of Thai GDP by itself generates 0.75% increase in GDP growth. This represents a minimum that is achieveable, not over a period of time, but immediately and with a high degree of policy certainty
From a 5% price reduction in goods to an overall 10% increase
in Value-for-Money1.The starting point of a 5% price reduction is based on
contracts only for goods. In services, which is more than 50% of Government Procurement, all contracts must go to lead Thai firms, employing at least 50 % Thai nationals. Anecdotal business evidence suggests this generates a price differential of considerably more than 5%!
2.Value-for-Money is not only about Price: it’s also about Quality and about Risk. There are a number of other reforms which Thailand could make, in keeping with the APEC Principles on Government Procurement, which would over a short period of time, deliver additional economic efficiency gains in transparency, open and effective competition, fair dealing, accountability and due process. Some rough proxy indicators for these can be found in Thailand’s rankings in eg World Bank Doing Business index
Second; the Commercial Gains• In addition to the economy-wide efficiency gains from domestic
reform, there are distinct opportunities to increase potential market access for Thai firms in the context of bilateral, regional and multilateral negotiation
• The Australian Government Procurement market is more than AU$140 billion and the New Zealand Government Procurement market is around NZ$20 billion a year
• In Australia, the non-defence budget is around $20 billion at Federal Government level and at least that much again at State Government level (concentrated in New South Wales, Queensland and Western Australia)
• In both countries, there are Government Procurement preferences of various kinds which are provided to local firms, which could be targetted by Thailand in inter-governental trade negotiations, thereby increasing the size of the market potentially open to Thai firms.
Market opportunities• Thailand has a strong trade surplus with Australia, in both
goods and services. Australia imports from Thailand are roughly double Australia’s exports to Thailand
• Thailand already has a demonstrated competitive edge in the Australian market and this could be enhanced by a good deal on Government Procurement
• In both the Australian and New Zealand Government Procurement markets, there are likely to be growth opportunities for Thai firms in eg manufacturing components and supplies, furniture cement, glass, infrastructure construction and maintenance, automobiles and auto parts, catering (processed foods), textiles, health services and professional services such as logistics
Are there any Costs?The strong economy wide gains we have identified are net gains. And the market access gains we have identified are “icing on the cake”. But as with any structural reform, there may also be some actual and perceived transitional distributional costs
Perceived industry policy losses Losses in terms of other social or economic
policy objectives to which Government Procurement has been directed
Administrative costs Commercial impacts from greater competition with foreign suppliers
Afternoon Panel: The Trade Policy Context
How could Thailand take some initial steps to reform Government Procurement ?
How much reform might bilateral partners require of Thailand in a Free Trade Agreement?
What might Thailand expect to gain in return?
What progress is Thailand making in applying the APEC Principles?
How much domestic reform would be required for Thailand to join the WTO GPA?
Afternoon Panel: The Trade Policy Context
What progress is Thailand making in applying the APEC Principles?
How much domestic reform would be required for Thailand to join the WTO GPA?
How much reform might bilateral partners require of Thailand in a Free Trade Agreement?
What might Thailand expect to gain in return?