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GOVERNMENT OF THE KHYBER PAKHTUNKHWA

FINANCE DEPARTMENT

NOTIFICATION

Peshawar, Dated the 3rd February 2014

No. SO (FR)/FD/9-7/2010/Vol-II.--In exercise of the powers conferred by section 36 of the

Khyber Pakhtunkhwa Public Procurement Regulatory Authority Act, 2012 (Khyber
Pakhtunkhwa Act No.XI of 2012), the Government of the Khyber Pakhtunkhwa is pleased
to make the following rules, namely:

The Khyber Pakhtunkhwa Public Procurement of Goods, Works and Services Rules,
2014.

CHAPTER 1

GENERAL PROVISIONS

1. Short title and commencement.-- (1) These rules may be called the Khyber
Pakhtunkhwa Public Procurement of Goods, Works and Services Rules, 2014.

(2) These shall come into force at once.

2. Definitions.-- (1) In these rules, unless there is anything repugnant in the subject or
context,-
(a) “Act” means the Khyber Pakhtunkhwa Public Procurement Regulatory
Authority Act, 2012;

(b) “bid” means a technical proposal or a financial proposal or a technical

and financial proposal submitted as a result of request for quotations,
tender notice, request for proposal as the case may be;

(c) “bid security/ surety/ guarantee” means a written guarantee from a third
party guarantor usually a bank [deleted]* submitted to a client by a
contractor or bidder with a bid;

(d) “borrower” means procuring entity;

(e) “contractor” means a person, a firm, a company or an organization

undertaking supply of goods, works or non consulting services;

(f) “emergency” shall refer to situation that poses an immediate risk of loss,
or has caused loss, or has high probability of escalating to cause
immediate danger to health, life, property or environment as covered
under the National Disaster Management Act, 2010 (Act No. XXIV
of 2010) and shall include natural calamities, disasters, accidents,
war and breakdown of operational equipment, plant, machinery or
engineering infrastructures, which may give rise to abnormal
situation requiring prompt and immediate action to limit or avoid
damage to health, life, property or the environment;

(g) “grievance redressal mechanism” means the regulations/guidelines

providing for grievance redressal process;

*
Words “or an insurance company” deleted, Vide Finance Department Notification No. SO (FR)/FD/9-7/2011/
Vol-II dated 11.08.2016.
 1

(h) “non -consulting services” means the provision of independent expert

advice of a quality at least equal to the applicable professional
standards in relation to acquisition of goods, services other than
consulting services and works;

(i) “PEC” means Pakistan Engineering Council;

(j) “professional engineering work” means providing professional advice and

opinions, the making of measurements and layouts, the preparation of
reports, computations, designs, drawings, plans, specifications and
construction, inspection, and supervision of engineering works, in
respect of:

(i) railways, aerodromes, bridges,

tunnels and roads;

(ii) dams, canals, rivers, drains, harbors,

lighthouses;

(iii) works of an electrical, mechanical,

hydraulic, communication, aeronautical, power engineering,
geological or mining character;

(iv) water works, sewers, filtration,

purification and incinerator works;

(v) residential and non-residential

buildings including foundations framework and electrical and
mechanical systems thereof; and

(vi) structures accessory to engineering

works and intended to house them;

(k) “Province” means the Province of the Khyber Pakhtunkhwa;

(l) “Public Fund” means--

(i) Provincial Consolidated Fund;

(ii) foreign assistance;

(iii) all moneys standing in the Public Account; and

(iv) funds of enterprises wholly or partly owned or managed or

controlled by Government;

(m)“repeat order” means a fresh contract or order given directly to the same
contractor or consultant without going into the normal procurement
process, in accordance with the specified conditions and limits
contained in these rules;

(n) “request for proposal” means bidding document for soliciting technical
and financial proposals for procurement of services;

(o) “supplier” means a person, a firm, a company or an organization

undertaking supply of goods, services or works;

(p) “terms of reference” means defining and elaborating on the objectives

and intended scope of services; and
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(q) “value for money” means best returns for each rupee spent in terms of
quality, timeliness, reliability, after sales service, up-grade ability,
price, source, and the combination of whole-life cost and quality to
meet the procuring entity’s requirements.

(2) Words, expressions and terms not specifically defined in these rules shall
have the same meanings as attributed to them in relevant trade and industry practices.

3. Applicability of these rules.— (1) These rules shall be applicable to all public
procurements.

(2) Under following circumstances deviation from the requirements of

advertisement and response time under these rules is permissible:

(a) in cases of emergency as provided in the National Disaster

Management Act, 2010 (Act No. XXIV of 2010), subject to the
condition,--

(i) that all such procurements along with its emergent nature has
to be recorded by the Procuring Officer and approved by the
technical head of the procuring entity under intimation to the
Principal Accounting Officer, Secretary at Provincial or
Deputy Commissioner at District level;

(ii) that these have to be immediately intimated to the Accountant

General Office or District Accounts Office, as the case may
be;

(iii) that quantities in all such procurements shall be limited to the

assessed requirement of emergency only; and

(iv) that these shall be used only for procurements upto maximum
for three months, which may be extended for such a period
that Government may deem fit, depending on the nature of
emergency;

(b) the procurement of sensitive nature and related to National Security:

Provided that the direct sourcing of all such procurements

shall be duly recorded; and

(c) the direct sourcing to a government organization for provision of

works, goods or services under a cost plus or fixed contract provided
that the Public Sector Organization shall not involve a private sector
enterprise as a partner or in the form of a joint venture or a sub-
contractor. The government organizations shall be totally government
owned and controlled or semi-autonomous and autonomous agencies
under the administrative control of Federal Government or Provincial
Government.

4. Language.—All documentation related to public procurements of entities shall be in

English or Urdu.

5. Code of ethics and integrity pact. --- Procurement exceeding the prescribed limit shall
be subject to an integrity pact, as specified by regulations/guidelines determined by Authority
in consultation with procuring entities, between the procuring entity and the suppliers or
contractors.

CHAPTER II
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METHODS OF PROCUREMENT OF GOODS

6. Open tendering open competitive bidding as principal method of procurement. --

(1) Save as otherwise provided hereinafter and subject to the provisions of rule 10, the
procuring entity shall use open competitive bidding as the principal method of procurement for
the procurement of goods over the value of Rs. 100,000 (rupees one hundred thousand).

(2) The following procedures shall be permissible for open tendering, namely:

a) single stage, one envelope procedure.-- this method should be used

where cost is the only determining factor. Each bid shall comprise one
single envelope containing financial proposal or offer and required
information in accordance with the bid solicitation documents. This
shall be the standard method of procurement of goods for simple and
routine nature and where no technical innovation is involved;

b) single stage, two envelops procedure.-- this method shall be used where
bids are to be evaluated on technical and financial grounds and price is
taken into account after technical evaluation. Bid shall comprise a single
package containing separate envelopes. Each envelope shall contain
separately the financial proposal and technical proposal;

(3) In case of procurement of complex or specialized goods either of the two

methods may be adopted,--

(a) pre-qualification of prospective bidders and invitation of bids from the

pre-qualified bidders; and

(b) through single envelope two stage method post-qualification-

(i) in the first stage, each bid shall comprise of a single

package containing envelope marked as technical
proposal;

(ii) the technical proposals will be evaluated in accordance

with the evaluation criteria set forth in the bid
solicitation document. A list of qualified and
unqualified bidders will be formulated at the end of
first stage;

(iii) following approval of the results of first stage,

financial proposals will be solicited from qualified
bidders in the second stage. The bidders will be
required to submit financial proposal in a single
envelope or package clearly marked as financial
proposal in bold and legible letters to avoid confusion;
and

(iv) the lowest offer from the qualified bidder shall be

accepted for award of the contract and will be the best
evaluated bid.

7. Enlistment of suppliers.-- (1) A procuring entity may establish a mechanism for

enlistment of suppliers for the purposes of procurement of goods and related services only in
exceptional or complex cases where specialized goods, equipment and related services are
required.

(2) The process of enlistment with such departments shall be open to all
prospective bidders. Annual renewal for all such pre-registrations or enlistment shall be
done on regular basis.
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(3) The enlistment forms shall be made available at the department’s and
authority’s websites in addition to all possible outlets at nominal or preferably no cost.

(4) The enlistment or renewal with the relevant department shall be undertaken
by a committee with five members with the chairperson being an officer of not less than
BPS-19. Results showing the latest enlisted or renewed suppliers, those having rejected
along with the recorded reasons for their rejection shall be made public within five days
after the committee has concluded business in this regard.

(5) Enlistment shall not be deemed as pre-qualification or post-qualification.

8. Pre-qualification of suppliers.--(1) A procuring entity, in the first stage may pre-

qualify bidders only in the following cases:

(a) where total worth of contract exceeds Rs. 10 million; and

(b) in cases of contracts for large and complex goods and related services,
in which there are high costs of preparing detailed bids.

(2) The procuring entity may pre-qualify bidders by soliciting various details in
accordance with sub-rule (1) of rule 8, and rule 36 of these rules.

(3) Pre-qualification of bidders shall be based entirely upon the capability,

competence and resources of the bidders relevant to performance in the particular
assignment, taking into account the following--

(a) legal status along with proof of registration with one of the Federal or
Provincial Registration Acts;

(b) proof of being a taxpayer;

(c) organizational profile, relevant experience, past performance, list of

clients and references;

(d) relevant experience and past performance;

(e) existing capabilities with respect to human resource, personnel,

computing and engineering equipment, machinery and plant, as may
be the case;

(f) financial position for the last three years including bank statements
and audited reports by an external auditor;

(g) proof of possessing appropriate managerial capability; and

(h) any other factor that a procuring entity may deem relevant, depending
on the nature and complexity of the contract but not inconsistent with
these rules.

(4) Qualified bidders shall be issued the tender documents.

(5) For further process sub-rule (2) of rule 6 shall be followed.

9. Open tendering post-qualification.--(1) If bidding is not limited to pre-qualified

firms, the procuring entity shall engage itself in post qualifying the bidders , in case of
contracts of complex nature and valuing Rs. 15 million or above.

(2) Procuring entity shall specify the requirement of post-qualification in the

solicitation documents. Post-qualification may be undertaken in accordance with the
provision of these rules, regardless of the bidders being pre-qualified.
 5

(3) This shall be done prior to recommending contract award; the procurement
committee shall determine whether the bidder whose bid has been determined to offer the
best evaluated bid has the capability and resources to effectively carry out the contract
offered in the bid.

(4) In case the procurement committee is not satisfied with qualification based on
the evaluation criteria resulting is not post-qualifying the best evaluated bid, it shall proceed
to make a similar determination for the bidder offering the next best evaluated bid and shall
go on with all the qualified and responsive bidders in accordance with their ranking in being
best evaluated, till the criteria is satisfied or till all such bids are rejected.

10. Alternate methods for procurement of goods.--- A procurement entity may use the
following alternative methods for procurement of goods, namely:

(a) procurement of goods upto Rs. 50,000/- may be undertaken by obtaining a

single quotation through direct sourcing.

(b) petty purchases between Rs. 50,000/- upto Rs. 100,000/- shall be procured
through alternate method only if the following conditions are met, namely:

(i) minimum of three quotations have been obtained:

Provided that if despite soliciting, less than three quotations

are received it would be acceptable;

(ii) request for quotation is sent to prospective bidders, simultaneously,

with full contents and same information, which is duly acknowledged
to be received;

(iii) the closing time, date and address for submitting quotations has been
clearly defined and adhered to;

(iv) the object of the procurement has standard specifications;

(v) in case, amount pertaining to applicable tax is not added in the

quotation, comparison of price is made after adding amount of
applicable tax; and

(vi) during comparison, each item should be compared to the

corresponding respective specification and bid evaluated to the
corresponding total cost of the bid;

(c) a procurement entity shall only engage in alternate method if the following
conditions exist, namely:

(i) repeat orders within a period of six months:

Provided that it does not exceed fifteen percent of the original

contract value;

(ii) in case of procurement through government organizations, in

accordance with provisions of rule-3(2)(c) of these rules;

(iii) where the procurement concerns the acquisition of spare parts or

supplementary services from original manufacturer or supplier or sole
distributor:

Provided that the same are not available from alternative

sources;
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(iv) where the same goods are not available from alternative sources or
only one contractor, manufacturer or supplier exists for the required
procurement;

(v) where a change of contractor or supplier would ensue the procuring

entity to acquire material having different technical specifications or
characteristics and would result in incompatibility or disproportionate
technical difficulties in operation and maintenance, this shall be done
with proper justification and recording of such reasons, provided that
the contract or contracts do not exceed three years in duration;

(vi) where the price of goods is fixed by Government;

(vii) where the motor vehicles or machinery is purchased from local

original manufacturers or their authorized agents at manufacturer’s
price including transportation charges and other applicable taxes; and

(viii) in case of emergency as defined in these rules and procurement

specified under sub-rule 3(2)(a) and 3(2)(b):

Provided that the procurement entity shall specify appropriate

forums vested with necessary authority to declare an emergency;

(d) a procuring entity may engage in negotiated tendering with one or more
suppliers or contractors without prior publication of a procurement
advertisement. This procedure shall be followed when--

(i) the supplies involved are manufactured purely for the purpose of
supporting a specific piece of research or an experiment, a study or a
particular development;

(ii) for technical or artistic reasons, or for reasons connected with

protection of exclusive rights or intellectual property, the supplies
may be manufactured or delivered only by a particular supplier; and

(c) for reasons of extreme urgency brought about by events unforeseeable

by the procuring entity, the time limits laid down for open and limited
bidding methods cannot be met. The circumstances invoked to justify
extreme urgency must not be attributable to the procuring entity:

Provided that any procuring entity desirous of using

negotiated tendering as a method of procurement shall record its
reasons and justifications in writing for resorting to negotiated
tendering and shall place the same on record.

11. Method of advertisement.---(1) The procurement entity shall engage in open

competitive bidding if the cost of the object to be procured is more than the financial limit
which is applicable under rule 10 purchases upto Rs. 2.5 million, shall be posted on the
procuring entity’s website or public procurement regulatory authority (PPRA’s) or both. These
procurement opportunities may also be advertised in print media, if deemed necessary by the
procuring entity.

(2) For all purchases, other than those being covered by the Khyber
Pakhtunkhwa Procurement rules 3 and 10, shall be advertised in print media, appearing in at
least one national English and one Urdu newspaper with nationwide circulation along with
advertising the same either on the procuring entity or Authority website.

(3) A procuring entity utilizing electronic media shall ensure that the
information posted on the website is complete for the purposes for which it has been posted,
and such information shall remain available on that website until the closing date for the
submission of bids.
 7

12. Bid security.---(1) The procuring entity may require the bidders to furnish bid
security of up to two per cent in case of procurement of goods, if required.

(2) In cases, where procurement is of complex nature, bid security up to 5

percent can be applied.

(3) Bid security shall be kept sealed in the financial proposal. In case of two
stage two envelopes the bidder shall, in addition, keep an affidavit in the technical proposal
stating that a bid security amounting to 2,3,4 or 5 percent, as may be the case without
indicating the figure in the letter, has been placed in the financial proposal or bid. Otherwise
the technical proposal will be considered non-responsive and will be returned to the bidder
after being examined by the procurement committee.

13. Goods warranty.--Where possible, the procuring entity shall ask for a warranty from
the supplier or contractor, for replacement or repair of the procured goods falling in the
warranty period.

CHAPTER III

PROCUREMENT OF WORKS AND

NON-CONSULTING SERVICES.

14. Open tendering open competitive bidding as principal method of procurement.--

(1) Save as otherwise provided hereinafter and subject to the provisions of rule 10, the
procuring entity shall use open competitive bidding as the principal method of procurement
for the procurement of goods over the value of Rs. 100,000/ rupees one hundred thousand.

(2) the following procedures shall be adopted for open competitive bidding:

(a) single stage – one envelope bidding,--the bid shall comprise of

one envelope containing financial bid. All bids received shall
be opened and evaluated in the manner prescribed in the
bidding document. This shall be the default method of open
competitive bidding;

(b) single stage – two envelope bidding,--

(i) this method shall apply to large and complex contracts;

(ii) bidders for this method shall be pre-qualified;

(iii) each bid shall comprise a single package containing

two separate envelopes. Each envelope shall contain
separately the technical proposal and the financial
proposal;

(iv) the envelopes shall be marked as technical proposal

and financial proposal in bold and legible letters to
avoid confusion;

(v) the envelope marked as technical proposal shall

contain:

(a) the experience and past performance in the

execution of similar contracts;

(b) the capabilities with respect to personnel and

construction equipments;

(c) the financial status and capacity; and

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(d) any other information asked for by the

procuring entity in the notice inviting tenders;

(vi) the second envelope marked as financial proposal shall

contain the price quoted by the bidders and be retained
in the custody of the procuring entity without being
opened;

(vii) the procuring entity shall evaluate the technical

proposal on the basis of criteria specified in the tender
documents without reference to the price and reject
any proposal which does not conform to the specified
requirements. During the technical evaluation, no
amendment in the technical proposal shall be
permitted. A list of technically qualified bidders shall
be finalized in this manner;

(viii) after the evaluation and approval of the technical

proposals the procuring entity, shall at a time within
the bid validity period, publicly open the financial
proposals of the technically accepted bids only. The
financial proposals found technically non-responsive
shall be returned un-opened to the respective bidders;
and

(ix) the bid found to be the lowest evaluated bid shall be

accepted;

(c) two stage - two envelope bidding,---this method shall be used

for turnkey or large or complex contracts and ensures that all
technical proposals conform to the same acceptable technical
standards required by the procuring entity.

First stage:

(i) the bid shall comprise a single package containing two

separate envelopes. Each envelope shall contain
separately the financial proposal and the technical
proposal;

(ii) the envelopes shall be marked as financial proposal

and technical proposal in bold and legible letters to
avoid confusion;

(iii) initially, only the envelope marked technical proposal

shall be opened;

(iv) the envelope marked as financial proposal shall be

retained in the custody of the procuring entity without
being opened;

(v) the technical proposal shall be discussed with the

bidders with reference to the procuring entity’s
technical requirements;

(vi) those bidders willing to meet the requirements of the

procuring entity shall be allowed to revise their
technical proposals following these discussions; and
 9

(vii) bidders not willing to conform their technical

proposals to the revised requirements of the procuring
entity shall be allowed to withdraw their respective
bids without forfeiture of their bid security.

second stage:

(i) after agreement between the procuring entity and the

bidders on the technical requirements, bidders who are
willing to conform to the revised technical
specifications and whose bids have not already been
rejected shall submit a revised technical proposal and
supplementary financial proposal, according to the
technical requirement;

(ii) the revised technical proposal along with the original

financial proposal and supplementary financial
proposal shall be opened at a date, time and venue
announced in advance by the procuring entity:

Provided that in setting the date for the

submission of the revised technical proposal and
supplementary price proposal, a procuring entity shall
allow sufficient time to the bidders to incorporate the
agreed upon changes in the technical proposal and to
prepare the required supplementary financial proposal;
and

(iii) the procuring entity shall evaluate the whole proposal

in accordance with the evaluation criteria and the bid
found to be the lowest evaluated bid shall be accepted.

15. Enlistment.—(1) Enlistment shall not be deemed as pre-qualification or post-

qualification.

(2) The process of enlistment shall be open throughout the year and any
prospective bidders shall be allowed to apply for without any hindrance.

(3) Procuring entities shall decide the applicable nominal fee and the period of
such pre-registrations, after which a renewal shall be necessary.

(4) Such enlistment/renewal with the relevant department shall be undertaken by

a committee with five members with the chairperson being an officer of not less than BPS-
19. Results showing the latest registered/renewed suppliers, those having rejected along with
the recorded reasons for their rejection shall be made public within five days after the
committee has concluded business in this regard.

(5) Criteria for enlistment shall be based on the evaluation of technical and
financial worth i.e. works executed, indicating value of works, list of technical and other
staff, plant/equipment along with the made and financial capacity.

(6) The criteria and list of enlisted bidders shall be posted on the department and
Authority web-sites as well as on a notice board placed in the respective departments at an
accessible site for public viewing.

(7) Bidding may be limited to enlisted bidders.

16. Pre-qualification of contractors.--(1) A procuring entity, in the first stage shall pre-
qualify bidders for specific contracts in cases where total worth of contract exceeds Rs. 45
Million or a work irrespective of its worth is considered as complex.
 10

(2) The procuring entity shall pre-qualify bidders by soliciting various details
including but not limited to the following providing pass/fail thresholds, in accordance with
the provisions of the Act and rules 17(1) and 34 of these rules.

(a) legal status along with proof of registration with PEC and enlistment
with the concerned provincial Government PE;

(b) proof of valid or renewed relevant registration;

(c) proof of being a taxpayer;

(d) organizational profile, relevant experience, past performance, list of

clients and references;

(e) existing capabilities with respect to technical personnel, computing

and engineering equipment, machinery and plant as may be the case;

(f) financial position for the last three years including bank statements
and audited reports by an external auditor;
(g) proof of possessing appropriate managerial capability; and

(h) any other factor that a procuring entity may deem relevant, and is duly
included in the bid solicitation documents, depending on the nature
and complexity of the contract but not inconsistent with the Act and
these rules.

(3) Bidding shall be limited to pre-qualified firms.

(4) Qualified bidders shall be issued the tender documents.

(5) For further process sub-rule (2) of rule 6 shall be followed.

17. Open tendering post-qualification of contractors.--- (1) In case of contracts costing

between Rs. 2.5 million to Rs. 45 million, the procuring entity may choose to call for bids with
the condition of post-qualification provided in the bidding documents.

(2) The post-qualification criteria provided in the bidding documents shall be

based on the evaluation of technical and financial worth i.e. works executed, indicating
value of works, list of technical and other staff, plant or equipment along with the make and
financial capacity.

(3) Bidding documents shall be made available to all interested bidders.

(4) The qualification of the lowest evaluated responsive bidders shall be checked
to ensure whether or not the bidder is qualified to perform the works.
 11

(5) If the lowest evaluated responsive bidder is not found to be qualified on all
the post-qualification criteria provided in the bidding documents, its bid shall be rejected.

(6) Credentials of the next lowest evaluated responsive bidders shall then be
checked against all of the post-qualification criteria provided in the bidding documents, and
the contract shall be awarded to the lowest evaluated responsive qualified bidder.

18. Alternate methods for procurement of works, and non-consulting services .--A
procurement entity may use the following alternative methods for procurement, namely:

(a) petty purchases,-- procurement of upto Rs. 50,000/- may be undertaken by

obtaining a single quotation through direct sourcing;

(b) request for quotations,-- procurement from Rs. 50,000/- upto Rs. 100,000/-
shall be procured through alternate method only if the following conditions
are met, namely:

(i) minimum of three quotations have been obtained, provided that if

despite soliciting, less than three quotations are received it would be
acceptable;

(ii) request for quotation is sent to prospective bidders, simultaneously,

with full contents and same information, which is duly acknowledged
to be received;

(iii) the closing time, date and address for submitting quotations has been
clearly defined and adhered to;

(iv) the object of the procurement has standard specifications;

(v) in case, amount pertaining to applicable tax is not added in the

quotation, comparison of price is made after adding amount of
applicable tax; and

(vi) during comparison, each item should be compared to the

corresponding respective specification and bid evaluated to the
corresponding total cost of the bid;

(c) Direct contracting,-- a procurement agency shall only engage in alternate

method if the following conditions exist, namely:

(i) where civil works are to be contracted and are a natural extension of
an earlier or ongoing job and it can be ascertained that the
engagement of the same contractor will be more economical and will
ensure compatibility of results in terms of quality of works subject to
limitation of repeat or variation order;

(ii) in case of procurement through government organizations, in

accordance with provisions of rule-3(2)(c) of these rules;

(iii) where a change of contractor or supplier would oblige the procuring

entity to acquire material having different technical specifications or
characteristics and would result in incompatibility or disproportionate
technical difficulties in operation and maintenance, this shall be done
with proper justification and recording of such reasons, provided that
the contract or contracts do not exceed three years in duration;

(iv) in case of emergency as defined in these rules and procurement

specified under sub-rule 3(2)(a) and 3(2)(b), provided that the
procurement entity shall specify appropriate forum vested with
necessary authority to declare an emergency;
 12

(v) subject to the conditions of contract, a procuring entity may, insure a

variation order to a contractor to include works which were outside
the original scope of works to ensure interests of Government and for
reasons of economy, compatibility and efficiency provided that:
(a) the original contract is still in force;

(b) the procuring entity has satisfied itself for technical reasons
that the placing of the variation order is cost effective;

(c) the value of variation order is not more than fifteen percent of
the original contract; and

(d) there may be more than one variation orders as long as the total
value of all the variation orders remains within 15 percent of
the original contract.

19. Method of advertisement.--(1) The procurement entity shall engage in open

competitive bidding if the cost of the object to be procured is more than the financial limit
which is applicable under rule 10. Procurement from Rs. 100,000/- to Rs. 2.5 million shall be
posted on the procuring entity’s website or Authority website or both. These procurement
opportunities may also be advertised in print media, if deemed necessary by the procuring
entity.
(2) For all procurement, other than those being covered by rule 10 shall be
advertised in print media, appearing in at least one national English and one Urdu daily
newspaper with nationwide circulation along with advertising the same either on the
procuring entity or Authority website or both.

(3) A procuring entity utilizing electronic media shall ensure that the information
posted on the website is complete for the purposes for which it has been posted, and such
information shall remain available on that website until the closing date for the submission
of bids.

20. Bid security.--(1) The procuring entity may require the bidders to furnish bid
security of two per cent in case of procurement of works, if required.

(2) The bid security shall be kept sealed in the financial proposal. In case of
single stage two envelopes, the bidder shall in addition, place an affidavit in the technical
proposal stating that a bid security amounting to 2 percent without indicating the figure in
the letter, has been placed in the financial proposal or bid. Otherwise the technical proposal
will be considered non-responsive and will be returned to the bidder after being examined
by the procurement committee.

(3) The bid security will be returned to unsuccessful bidders after signing of the
contract with the successful bidder.

(4) The bid security of the successful bidder will be retained in case no
performance guarantee is required, however such a condition shall be mentioned in the
bidding document. [In case performance guarantee is required, the bid security of two
percent (2%), as specified in sub-rule (1), of the successful bidder, shall not be returned. The
successful bidder shall be required to deposit eight (8%), of the cost of the contract in the
shape of an irrevocable bank guarantee.]*

21. Performance guarantee.--The procuring entity may ask for a performance guarantee
from the contractor, which shall not exceed 10 percent of the bid value, as would be specified
in the standard bid solicitation documents or standard bidding document.

*
Substituted by the Finance Department Notification No. SO (FR)/FD/9-7/2011/Vol-II dated 11.08.2016.
 13

CHAPTER IV

PROCUREMENT OF CONSULTANCY SERVICES

22. Application of consultancy services rules.--These rules shall apply only to consulting
services which are of an intellectual and advisory nature and differ from the other types of
services directly connected with the procurement of goods and works in which the physical
component of the activity is the main function and often involves equipment-intensive
assignments.

23. Systems for selection of consultants.--The selection system shall be determined by the
procuring entity prior to the commencement of the process of selection of prospective
consultants. Procuring entity may utilize one of the following systems for selection of
consultants, namely:

(a) quality based selection (QBS),-- this system will be used for highly
specialized and complex assignments, where quality is the only factor
taken into consideration;

(b) quality and cost based selection (QCBS),---this system will be used
where high quality is the prime consideration while cost is a
secondary consideration;

(c) least cost,--- this system will only be used for assignments of standard
or routine nature, where well established practices and standards
exist;

(d) single source or direct selection,---subject to approval by head of the

procuring entity, a procuring entity may engage in single-source
procurement-

(i) the goods, construction or services are available only from a

particular contractor or supplier, or a particular contractor or
supplier has exclusive rights in respect of the goods,
construction or services, and no reasonable alternative or
substitutes exists; or

(ii) the procuring entity having procured goods, equipment,

technology or services from a contractor or supplier,
determines that additional supplies must be procured from that
supplier or contractor for reasons of standardization or
because of the need for compatibility with existing goods,
equipment, technology or services, taking into account the
effectiveness of original procurement in meeting the needs of
the procuring entity, the limited size of the proposed
procurement in relation to the original procurement, the
reasonableness of the price and the unsuitability of alternative
to the goods or services in question; or

(iii) in cases of emergency;

(iv) for very small assignments valuing upto Rs. 500,000/-; and

(v) where only one consultant is qualified or has experience of

exceptional worth; and

(e) fixed budget-- this system shall be used only when the assignment is
simple, can be precisely defined and when the budget is fixed. The
request for proposals shall indicate the available budget. Proposals
that exceed the indicated budget shall be rejected. The ranking shall
 14

be based only on evaluation of technical proposals of the qualified

bidders.

24. Criteria for eligibility of consultants. --The procuring entity shall not hire a consultant
for an assignment in which there is possibility of conflict of interest. If a consultant has been
engaged by the procuring entity to provide goods or works for a project, it shall be disqualified
from providing consulting services for the same project. Similarly, consultant should not be
hired for any assignment which by its nature, may be in conflict with another assignment of the
consultant.

25. Expression of interest (EOI).--(1) A request for expression of interest shall be

advertised, giving to the applicants at least two weeks for national competition and four weeks
for international competition to submit their interest to provide consultancy services.

(2) The expression of interest shall contain at least the following information:

(a) the name and address of procuring entity;

(b) an appropriate description of the assignment providing scope of the

intellectual and professional services required;

(c) deadline and place of the submission of expression of interest; and

(d) criteria for short-listing where required.

26. Criteria for short-listing of consultants.--(1) Whenever short-listing is deemed

necessary, the procuring entity shall pre-determine criteria for short-listing. Except for single
source, there will normally be a minimum of three consultants in the short-list, but there is no
upper limit for number of candidates to be short-listed. However, if less than three candidates
apply, their proposals may be considered on merit.

(2) The procuring entity while short-listing consultants may take the
following factors into consideration, namely:

(a) qualification;

(b) general experience; or

(c) specific experience, particularly of the last five years; or

(d) any other factor that a procuring entity may deem relevant, not
inconsistent with these rules.

(3) All applicants shall be informed whether or not they have been short-
listed.

27. Request for proposals (RFP).---(1) The procurement entity shall make available to all
the short-listed consultants, together with the request for proposals, all information on the
equal opportunity basis.

(2) The procuring entity shall use a request for proposal for seeking proposals
from the Consultants which shall include the following, namely:

(a) letter of invitation (LOI),---the letter of invitation shall mention the

name and address of the procuring entity and shall state the intention
of the procuring entity to enter into a contract for provision of
consulting services;

(b) instruction to consultants,---the instructions to consultants shall

contain all necessary information that would help them prepare
 15

responsive proposals and shall bring as much transparency as possible

to the selection system;

(c) terms of reference (TOR),---the terms of reference shall

unambiguously define the objectives, goals and scope of the
assignment besides conditions of contract. Terms of reference shall
list the services and surveys necessary to carry out the assignment and
expected outputs. It shall also include the evaluation criteria;

(d) evaluation criteria,---except as otherwise provided, the evaluation of

proposals shall be carried out giving due consideration to quality and
cost;

(e) type of contract,---the procuring entity, depending on the

circumstances, may use one of the following types of contract,
namely:

(i) lump sum contract will be used mainly for assignments in

which the content, duration of the services and the required
output are unambiguously defined;

(ii) time based contract will be used when it is difficult to define

the scope and the length of services;

(iii) hourly or daily rates will be used for small projects, especially
when the assignment is for less than a month; and

(iv) any other, based on combination of the above and including out
of pocket expenses, where required;

(f) [Deleted]*

(g) special provisions,--the procuring entity may specify any other

requirement related to the assignment or contract etc, where
required.

(3) The procuring entity will invite the prospective consultants to submit
their technical and financial proposals in separately sealed envelopes. The procuring
entity shall give deadline for submission of proposals. Consultants shall be given
adequate time for preparing their proposals which shall not be less than [two weeks]**.

28. Selection process of individual consultants.---(1) Individual consultants may not be

required to submit proposals, and shall be selected based on their qualifications for the
assignment.

(2) Individual consultants shall be selected by comparing the qualifications of at

least three consultants among those who have expressed interest in the assignment or have
been approached directly by the procuring agency. Individual consultants considered for the
comparison of qualifications shall meet the minimum relevant qualifications, and the one
selected to be employed by the procuring agency shall be the best qualified and shall be
fully capable of carrying out the assignment.

(3) An individual consultant may be selected on a single-source basis (with due

justification) in exceptional cases; such as the following--

*
Words “The consultant shall submit a bid security at the rate of 2 percent of the consulting cost which shall
be forfeited in case he refuses to sign the contract agreement” deleted by KPPRA Notification No.
KPPRA/M&E/Estt:/2014-15 dated May 12, 2015.
**
Substituted by KPPRA Notification No. KPPRA/M&E/Estt:/1-3/2015-16 dated Dec 15, 2015.
 16

(a) for a task that is a continuation of previous work that the consultant
has carried out and for which the consultant was selected
competitively;

(b) in an emergency situation resulting from a natural disaster; and

(c) when the individual is the only consultant qualified for the
assignment.

(4) For key assignments, interviews may be set up, and invited candidates
should be paid travel and subsistence, as needed. Capability of the candidates should be
evaluated.

29. Professional liability of consultants.--(1) The consultant selected and awarded a

contract shall be liable for consequence of errors or omissions on its part. The extent of
liability of the consultant should be incorporated in the contract and in no case should it be less
than remunerations excluding the out of pocket expenses, nor should the liability exceed twice
the remunerations.

(2) The procuring entity may demand insurance on part of the consultant to
cover its liability as stated above, and necessary costs shall be borne by the consultant
which shall be re-imbursed by the procuring entity as out of pocket expenses by the
consultant.

(3) The consultant shall be held liable for all losses or damages and short
comings in deliverance etc, suffered by the procuring entity as a result of mis-conduct or
inadequate services in performing the consulting services.

CHAPTER V

MISCELLANEOUS PROVISIONS

30. Procurement planning.---Each procuring entity shall plan its procurements with due
consideration to transparency, economy, efficiency and timeliness, and shall ensure equal
opportunities to all prospective bidders in accordance with section 22 of the Act.

31. Limitation on splitting or regrouping of proposed procurement .--A procuring entity

shall announce in an appropriate manner, all proposed annual procurements and shall proceed
accordingly without any splitting or regrouping of the procurements so planned.

32. Procurement committees.-- (1) Each procuring entity shall constitute committees,
in accordance with delegation of financial powers, separately for procurement of goods, works
and services.

(2) The committees shall have a representative each from the accounts or finance
or planning sections of the procuring entity apart from others.

(3) A technical member shall be inducted from the relevant line department of
Government or hired in all procurements of works or in exceptional cases, provided that
procurement is technical and complex in nature.

33. Bid solicitation documents.--(1) A procuring entity shall apply bid solicitation
documents as are applicable and are found consistent with the provisions of the Act and rule 34
of these rules, till such time when standard bidding documents are developed and prescribed in
accordance with provisions of the Act and the rules.

(2) In case of procurement of works, solicitation documents shall contain

technical specifications, drawings and designs, bill of quantities and estimated costs
whatever applicable, evaluation criteria, expected commencement of contract and time
 17

period for completion, bid validity, securities demanded, payment schedule, general and
special conditions of contract, in case of procurement of works.

(3) In case of procurement of goods and services, including consulting services,

the standard bidding document shall include scope of work and terms of reference, the
evaluation criteria, the extent of bid validity, quantity, quality and specifications;
qualification and experience of consultants, securities, approach and methodology, work
plan and delivery schedule, pre-shipment inspection where applicable, schedule of payments
and general and special conditions of the contract.

(4) Apart from the above, any other document or information or detail that the
procuring entity may deem necessary, shall be included in the solicitation documents,
unambiguously.

(5) Solicitation documents shall be made available to the bidders from the date of
their issuance to the closing date on submission of required fee by the prospective bidder
whether in person or, if so requested through an authorized request in writing. In case the
request is made through courier, it shall accompany a bank draft in favor of the procuring
entity including the cost of return delivery.

(6) In case where the procuring entity deem necessary may, keep a time period
ending earlier than the closing date of tender or bid, for obtaining bid solicitation
documents, provided that it is not less than the minimum response time provided in rule 34.

(7) In case of modification of solicitation documents by the procuring entity in

accordance with section 23(9) of the Act, it shall do so by issuing an addendum or
corrigendum and intimate the bidders publicly or individually, in case it has issued the
solicitation documents, 5 days before the closing date. In case, the changes are substantial,
the time for submission may be extended proportionately, by issuing timely intimation to all
bidders.

34. Response time.---(1) The procuring entity may decide the response time for receipt
of bids or proposals including proposals for pre-qualification from the date of publication of an
advertisement or notice, keeping in view the contract’s complexity, and urgency. However,
under no circumstances the response time shall be less than fifteen days for national
competitive bidding and thirty days for international competitive bidding from the date of
publication of advertisement or notice in the national newspaper.

(2) The response time shall be calculated from the date of first publication of the
advertisement in a newspaper or posting on the web site, as the case may be.

(3) In situations where publication of such advertisements or notices has

occurred in both electronic and print media, the response time shall be calculated from the
day of its first publication in the newspapers.

35. Bid validity.--(1) Bidders shall be required to submit bids valid for a period
specified in the bid documents which shall be sufficient to enable a procuring entity to
complete the evaluation and comparison of bids and obtain all necessary approval so that a
contract can be awarded within that period.

(2) A procuring entity shall complete evaluation of bids and award of contract
within the initial period of bid validity. An extension of bid validity, if justified by
exceptional circumstances, shall be required in writing from all bidders before the expiry
date. Bidders consenting to extend their bid validity period shall also correspondingly extend
the validity of their bid security.

(3) A bidder not agreeing to extend its bid validity period may do so without
having his bid security, forfeited and in this case its bid will no longer be considered in the
evaluation proceedings.
 18

(4) The bid security shall be forfeited if a bidder withdraws his bid, with in the
validity period thereof or, in the case of a successful bidder, who repudiates the contract or
fails to furnish performance security.

36. Pre-qualification process.--(1) The procuring entity engaging in pre-qualification

shall announce, in the pre-qualification documents, all information required for pre-
qualification including instructions for preparation and submission of the pre-qualification
documents, evaluation criteria, list of documentary evidence required of contractors or
consultants to demonstrate their respective qualifications and any other information that the
procuring entity deems necessary for pre-qualification.

(2) The procuring entity shall provide a set of pre-qualification documents to any
contractor or consultant, on request and subject to payment of document fee if applicable,
which shall not exceed cost of printing and providing the documents.

(3) The procuring entity shall promptly notify each contractor or consultant
submitting an application to pre-qualify whether or not it has been pre-qualified and shall
make available to any person directly involved in the pre-qualification process, upon
request, the names of all contractors or consultants who have been pre-qualified. Only
contractors or consultants who have been pre-qualified shall be entitled to participate.

(4) The procuring entity shall communicate on request, to those contractors or

consultants who have not been pre-qualified the reasons for not pre-qualifying them.

37. Submission of bids and bid opening.--(1) Bids shall be invited through a procuring
officer of the procurement entity.

(2) A procuring entity shall require bidders to submit sealed written bids or in
such other manner as may be prescribed in the solicitation documents.

(3) The procuring entity shall issue the bidder with a receipt showing the date
and time when the bid was received.

(4) No bids or tenders received after the prescribed time and date in the
solicitation documents or in accordance with subsequent corrigendum, shall be entertained.

(5) The method for submission of bids shall be determined by the type,
complexity and evaluation method of the procurement in accordance with these rules.

(6) All announcements pertaining to public procurement shall specify the last
date for submission of bids as well as the public bid opening which shall be the same.

(7) The bids, technical or financial as the case may be, shall be opened at the
prescribed time provided in the solicitation documents in the presence of the procurement
committee and the bidders who choose to be present.

(8) The name of the bidder, bid modifications, discounts or withdrawals,

presence of bid security or affidavit as the case may be and the total amount of each bid and
any alternatives, if so permitted, shall be read out aloud and recorded, and a copy of the
record shall be made available to any bidder on request.

(9) No bidder shall be allowed to withdraw his bid till award of the contract or
till bid is valid, whichever is earlier.

(10) A procuring entity may ask bidder for clarification of the bid to assist in the
evaluation. To avoid delays, the procuring entity may hold a pre-bid conference with the
prospective bidders at least five working days before the last day for submission of bids if
the procurement is of complex nature and high value.
 19

38. Confidentiality.--The procuring entity shall keep all information regarding the bid
evaluation confidential until the time of the announcement of the evaluation report in
accordance with the requirements of rule 45 of these rules.

39. Bid evaluation.— (1) All bids shall be evaluated in accordance with the evaluation
criteria and other terms and conditions set forth in the bidding documents.

(2) For the purpose of comparison of bids quoted in different currencies, price
shall be converted into a single currency specified in the bidding documents. The rate of
exchange shall be the selling rate prevailing seven working days before the date of opening of
the bids specified in the bidding documents, as notified by the state bank of Pakistan.

(3) A bid once opened in accordance with the prescribed procedure shall be
subject to only those rules, regulations and policies that are in force at the time of issuance
of notice for invitation of bids.

40. Discriminatory and difficult conditions.---Save as otherwise provided, no procuring

entity shall introduce any condition, which discriminates between bidders or that is considered
to be met with difficulty. In ascertaining the discriminatory or difficult nature of any condition
reference shall be made to the ordinary practices of that trade, manufacturing, construction
business or service to which that particular procurement is related.

41. Open tendering with international competition.--- When, in the absence of

domestic capacity, effective competition cannot be obtained unless special efforts are made to
attract international competition, international competition may be solicited in accordance with
the provisions of the Act complemented with the following provisions:

(a) the tender documents shall be in English language;

(b) the invitation to tender shall be in English language and shall be

placed in a newspaper of sufficient circulation to attract foreign
competition and may also be placed on international web pages
famous for international bidding advertisement. In addition, a
procuring entity may transmit such invitations to their embassies and
trade representatives of potential supplier countries;

(c) the time allowed for submission of tenders shall be sufficient for the
invitation to reach bids, depending on the complexity and nature of
procurement and for enabling them to prepare and submit bids but in
no case less than thirty days;

(d) technical specifications shall, to the extent compatible with national

requirements, be based on international standards or standards widely
used in international trade;

(e) bidders shall be permitted to express their bids, as well as any bid and
performance security documents to be presented by them in their
respective home currencies or in a currency widely used in
international trade and stated in the solicitation documents;

(f) general and special conditions of contract shall be of a kind generally

used in international trade; and

(g) standard bidding documents (SBDs) for goods, works and services
shall be used for international competitive bidding (ICB) as well.
 20

42. Post bid negotiation.---Procuring entity may negotiate with the highest ranked
bidder regarding methodology, work plan, staffing and special conditions of the contract. In
case of consulting services the procuring agency shall not permit substitution of key staff,
unless both parties agree that undue delay in selection process makes such substitution
unavoidable. Similarly, negotiations shall not seek changes in the rates quoted by the bidder. In
case of failure of negotiations, the procuring agency may invite the second ranked bidder as per
the evaluation report.

43. Disqualification of suppliers, contractors and consultants .---The procuring entity

shall disqualify a supplier or contractor or consultant if it finds, at any time, that the
information submitted by him concerning his qualification as supplier or contractor was false
and materially inaccurate or incomplete. However, the bidder may have right to appeal against
the decision in accordance with section 35 of the Act and grievances redressal mechanism
framed under the Act.

44. Blacklisting of suppliers, contractors and consultants.---(1) The procuring

entity shall specify a mechanism and manner to permanently or temporarily bar, from
participating in their respective procurement proceedings, suppliers contractors and consultants
who either consistently fail to provide satisfactory performances or are found to be indulging
in corrupt or fraudulent practices or abandon the work prematurely resulting in loss to
Government . Such barring action shall be duly publicized and communicated to the Authority,
provided that any contractor or consultant who is to be blacklisted shall be accorded adequate
opportunity of being heard in person.

(2) The bidder will have a right to complain to the administrative Secretary of the
procuring entity or to file an appeal to the Authority in accordance with section 35 of the Act
and regulations or guidelines to be framed under it.

45. Announcement of evaluation reports.---Procuring entities shall announce the results

of technical bid evaluation in the form of a report before opening of the financial bids, to all
bidders. The procuring entity shall also announce the final results of a bid evaluation giving
justification for acceptance or rejection of bids at least ten days prior to the award of a contract
and place the same on its and Authority website.

46. Approval of contract award.--(1) The procurement committee shall submit the bid
evaluation report with its recommendations for award of contract, to the approving authority in
accordance with the delegation of powers under the financial rules and the power of re-
appropriation rules 2001, in an expeditious manner, so that the award can be notified before
expiry of the bid validity period, without having to seek extension, in conformity with the
provisions of section 31 of the Act and these rules.

(2) All contract awards shall be made public through publication on Authority
website.

47. Rejection of bids.---(1) The procuring entity may reject all bids or proposals at any
time prior to the acceptance of a bid or proposal. The procuring entity shall upon request
communicate to any contractor or consultant who submitted a bid or proposal, the grounds for
rejection of all bids or proposals.

(2) The procuring entity shall incur no liability, solely by virtue of its invoking
sub-rule (1) towards contractors or consultants who have submitted bids or proposals.

(3) Notice of the rejection of all bids or proposals shall be given promptly to all
contractors or consultants that submitted bids or proposals.

48. Re-bidding.---(1) If the procuring entity has rejected all bids under rule 47 it may
call for a re-bidding.
 21

(2) The procuring entity before invitation for re-bidding shall assess the reasons
for rejection and may revise specifications, evaluation criteria or any other condition for
bidders as it may deem necessary.

49. Payments.---All procuring agencies shall make prompt payments to contractors and
consultants against their invoices or running bills within the time given in the conditions of the
contract.

50. Entry into force of the procurement contract.--- A procurement contract shall come
into force-
(a) where no formal signing of a contract is required, from the date the
notice of the acceptance of the bid or purchase order has been given to
the bidder whose bid has been accepted. Such notice of acceptance or
purchase order shall be issued within 15 days thereof; or

(b) where the procuring entity requires signing of a written contract, from
the date on which the signatures of both the procuring entity and the
successful bidder are affixed to the written contract. Such affixing of
signatures shall take place within 15 days after the letter of acceptance
or award has been issued:

Provided that where the coming into force of a contract is

contingent upon fulfillment of a certain condition or conditions, the
contract shall take effect from the date whereon such fulfillment takes
place.

51. Closing of contract.--(1) Except for defect liability or maintenance by the

contractor or consultant, as specified in the conditions of contract, performance of the contract
shall be deemed close on the issue of over all delivery certificate or taking over certificate
which shall be issued within thirty days of final taking over of goods, or receiving the
deliverables or completion of works enabling the contractor or consultant to submit final bill.

(2) In case of defect liability or maintenance period, defect liability certificate

shall be issued within thirty days of the expiry of the said period enabling the contractor or
consultant to submit the final bill. Except for unsettled claims, the bill shall be paid within
the time given in the conditions of contract, which shall not exceed sixty days to close the
contract.

(3) Relevant provision for closing of contract shall be a part of the bid
solicitation document.

52. Record of procurement proceedings.--(1) All procuring entities shall maintain a

record of their respective procurement proceedings along with all associated documentation.

(2) Such maintenance of record shall be subject to the regulations framed in this
regard from time to time.

53. Public access and transparency.--As soon as a contract has been awarded, the
procuring entity shall make all documents related to the evaluation of the bid and award of
public contract:

Provided that where the disclosure of any information related to the award of a
contract is of proprietary nature or where the procuring entity is convinced that such
disclosure shall be against the public interest, it can withhold only such information from
public disclosure subject to the prior approval of the administrative department.
 22

54. Mis-procurement.--Any breach of these rules shall account to mis-procurement and

the person responsible for such breach shall be liable to be proceeded under the relevant law.

55. Repeal.-- The Khyber Pakhtunkhwa Procurement of Goods, Works and Services Rules,
2003 is hereby repealed.

SECRETARY TO
GOVERNMENT OF KHYBER PAKHTUNKHWA
FINANCE DEPARTMENT