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ࡱ>    1Pbjbj 48+? =$"_$%%%%%%8&DW' %zhc,L,,:,,222hhhhhhhk"nh%5H1255h{${$,,I4h===5H{$,%,h=5h==a i%^1f,P9"x%_9 cJ hJh0zhen;nt1fn%1f22=r3|3)222hh=222zh5555n222222222 #: HMN Guide for Procurement and Acquisition of ICT for Health Information Systems Executive Summary The rapid improvement and falling cost of Information and Communication Technologies (ICT) is fueling change in the health sector. While the gains in efficiency toward better health are enormous, ICT implementations within the complexity of the health sector have had a historically high failure rate due in part to procurement decisions made without enough information. This document aims to make the process of acquiring technology for health information systems more transparent. It covers the role of technology for HIS, the various strategies available, and how to make robust and informed procurement decisions. Included is a listing of the Total Cost of Ownership, example Request for Proposals (RfP), the criteria by which you should evaluate bids, as well as elements of a contract and licensing options. The greatest challenge throughout procurement is long-term sustainability of the HIS. Major keys to success: View technology as an integral part of a larger system, supported by adequate policies, funding, communication, and skilled leaders and staff Create a long-term strategic plan for HIS and technology Maintain control of the purchasing process demand good customer service Understand the true and Total Cost of Ownership not just the cost of computers or software Carefully match existing resources with the pace of implementation to allow for a sustained, incremental approach Build local capacity to fully utilize the technology During procurement: Understand your country's holistic HIS needs, buy a solution that addresses those needs Buy what works best, expect vendors to prove their worth Prepare contracts taking into consideration problems that will arise 5-10 years from now Use this Guide to inform yourself throughout the complex process in which you are now engaging This Guide does not cover details on HIS functionalities; these must be developed in context, for each organizational need. The Health Metrics Network ( HYPERLINK "http://www.healthmetricsnetwork.org/"www.healthmetricsnetwork.org) Framework and Standards for Country Health Information Systems provides additional information on HIS and its architecture. Table of Contents 1. Purpose and rationale 3 2. The Health Information System 4 3. Technology Options 6 4. Contracting and Licensing 11 4.1. Models for software acquisition and implementation 11 4.2. Total Cost of Ownership (TCO) 12 4.3. Requests for Proposals (RfP) 13 4.4. General Vendor Evaluation Process and Recommendations 16 4.5. Contracts 19 4.5.1. Components of a Software or Hardware Contract 19 4.5.2. Contract Negotiation and Pricing 21 4.6. Licensing 23 4.6.1. Licensing Schemes 23 4.6.2. Source Code Ownership, Customizations, and Escrow 23 5. Project management 26 Annexes 28 Annex A Total Cost of Ownership 28 Annex B - Sample RfP Table of Contents 28 Annex B2 Sample RfP 28 Annex C Evaluation of Vendors Score Sheet 30 Annex D Additional Vendor Evaluation Tips 30 Annex E RfP Response Checklist 31 Annex F - Hardware Modules 33 1. Purpose and Rationale Audience: This Guide is written for managers of Health Information Systems at national and regional levels, and stakeholders who should be invested in the process when procurement takes place. This range of audience illustrates the disparate actors who currently make procurement decisions, although ideally procurement should be organized centrally to avoid fragmentation. Additional audiences are consultants and representatives of international agencies writing Requests for Proposals for HIS in developing countries. Purpose: This Guide is intended to assist managers and decision-makers in making sound procurements for technology and services for Health Information Systems. After using this Guide, readers should understand the process of contracting for HIS software and services, understand their rights as consumers, and the steps required in the implementation process. Rationale: This document is a response to implementation and contracting problems observed in various countries, which resulted from unsustainable procurement of health IT equipment and services. This Guide provides the pieces to make informed purchases, for while HIS procurement is complex, an awareness of norms and constraints will make the pitfalls easier to avoid. Customers Bill of Rights I have the right: To set objectives for the project and have them followed To know how long the software project will take and how much it will cost To decide which features should be included in software To make reasonable changes to requirements throughout the course of the project and to know the costs of making those changes To know the projects status clearly and confidently To be apprised regularly of risks that could affect cost, schedule, or quality, and to be provided with options for addressing potential problems To have ready access to project deliverables throughout the project 2. The Health Information System HIS is a broad term that covers not just the hardware, software, and paper forms used to collect process and analyze data, but also includes the routines (business processes), policies, staff, and institutions that facilitate these activities. The HMN operates with six major components of an HIS, namely Health information systems resources, Indicators, Data sources, Data management, Information products, and Dissemination and use. Technology such as hardware and software thus work in a larger system, and how the other components are defined very much determines what kind of technology is needed. These components differ for a range of health-supported activities, which has given rise to various more specialized subsystems. Some examples: Patient records systems Routine HIS Supply chain systems Health finances/Insurance Civil registration systems Human resources for health Disease surveillance systems Environmental health systems The various needs these systems serve put some challenges forth for the staff to develop or procure, and maintain them. Staff with knowledge from several domains is needed. The key personnel for the HIS should have knowledge of both IT and health issues, and how health information is used for decision making at the various levels. The technology used for each subsystem may be paper-based or computer-based, or a combination, and there are many software packages available (see HYPERLINK "http://www.tghin.org/"www.tghin.org) from a range of vendors and aid agencies. Until recently most of the software was incompatible and could not be easily integrated because they were not designed to share and compare information. But integration, linking systems to work as one, is critical to fully utilizing the data collected. Therefore, before procuring anything, think holistically and adhere to systems thinking, which means seeing the greater picture of the HIS as composed of the six components above, and the various manifestations of subsystems the variations of these components lead to. It is also necessary to pay attention to what already exists, and know how this will fit with the new technology. The HMN assessment tool is a useful exercise in this regard. The software and hardware are just small parts of a greater system which should be seen in connection with the surrounding context. The Vision of Integrated HIS Historically, various health information programs, even within one country, have functioned independently. It is not only vertical programs (HIV patient tracking, Maternal and Child health, etc.) that use independent systems, but within one country there may be hundreds of incompatible patient record systems (as in the USA). By integrating health information systems, duplication of data is reduced, and there is greater access to streamlined information. In an integrated system economies of scale may be employed in collecting, processing, and disseminate information, and data becomes more valuable by comparing it with other data. For example, information about numbers of antenatal visits is more valuable if you also know the population of the area, and thus the estimated number of pregnant women; Information about the spread of water borne diseases will be more useful when combined with information about water supply and sewage in the area. All actors should agree on the vision for an integrated HIS. Funding for strengthening one health program should be used to improve the overall HIS, not just the particular area of intervention. With an integrated HIS, and a dedicated unit of staff for data management at all levels, all health programs are to benefit from improvements of its functioning. The model of an integrated health information system (illustrated below), shows data sources collected in an integrated data repository, where the various information products are produced to be disseminated and used by various actors. The system is founded on policies, resources, processes, and knowledge, which more than the choice of technology determines the functioning of the system. The policy, administrative, organizational and financial support required must exist across the life span of the system. Legislative and regulatory environments must be in place to enable confidentiality, security, ownership, sharing, retention and destruction of data, routines, empowerment and capacities to use data at all levels, and infrastructure to share information between producers and users both inside and outside the health system. Standards across the spectrum of systems and processes bind them together. Technology is only a small, but important, part of this larger framework of health information.  This model applies whether the system is paper-based, completely electronic, or somewhere in between. The small boxes for each theme explain possible roles for technology. In practice, most systems would use a mix of paper at lower levels, and IT at higher levels. This mix might even be different within the country, with computers and electronic transmission more widespread in urban areas where infrastructure and support is more readily available. 3. Technology Options The following provides the consumer with a brief overview of the ways in which technology can help strengthen health information systems. Some key insights to the software development process are presented to help you manage ICT procurement. How to apply technology in HIS Before any technology can be successfully applied to an HIS, the system needs to be clearly defined and functioning. The technology is there to support the existing policies and work routines and if these are not working well, a software application merely laid over top will fail. Organizational and not technological needs must drive ICT projects. Given the complexity and diversity of a HIS as well as the number of organizations installing their own software, there will always be multiple technological solutions running in parallel covering different functions, health programs or regions. Be aware that without careful planning, procuring fragmented systems will result in multiple applications with overlapping functionality, problems of exchanging data between applications, and a chaotic and nearly impossible technological stack to maintain by often under-resourced ICT teams. When planning ICT projects for HIS an overall architecture of the HIS with clearly defined sub-components with purpose and responsibilities, as well as communication patterns between the different parts of the bigger system are needed. To ensure that software applications support an integrated HIS approach it is important to enforce the use of standards-based metadata, e.g. common health facility identification or nationally defined indicator definitions, and follow standard procedures for data collection and data processing (e.g. how the indicator "Births attended by skilled health personnel" is calculated). On a technical level, software applications need a shared format for data exchange so plan ahead for how your components should inter-operate, ideally using open and accepted international standards. Standards-based data export functionality available through the user interface or some kind of externally exposed service is a key requirement to any computer system being implemented within the context of an integrated HIS, as it enables any user or computer system to get access to the data in a human readable way. When procuring ICT be aware of the risk involved when replicating successful solutions from different contexts. There are many examples of failures when applying apparently successful technology, especially from developed countries to a completely different setting in a developing country. Also within countries there can be huge differences in terms of access to power, ICT skills, computer networks etc, and it is important to be aware of these differences when applying technology, whether it is hardware or software. A participatory approach to ICT procurement and software development that involves a broad group of stakeholders among the potential users can help to reduce the risks of procuring inappropriate technologies. ICT projects can easily get very complex and many fail when trying to achieve everything all at once. A step-by-step approach to applying ICTs is advised as well as sensitivity to the requirements of human capacity, infrastructure and costs involved with each step. To create a sustainable solution, scale up according to the resources at hand with a clear vision on where to go, and how to get there. From a national HIS perspective scaling applies to different dimensions; 1- geographical reach (start with a few pilots and go nation-wide when ready), 2- functional scope (medical records, routine aggregated HIS, lab, HR etc), and 3- at which point in the health hierarchy you computerize (national, sub-national, district, facility, community). As long as the overall design for HIS is in place, computerized and paper-based information systems can adhere to the same standards and policies, function together, and in combination provide the level of completeness needed. Figure 2 illustrates a transition process in which an HIS is scaled up from a paper-based system of aggregated data (right side) to a gradually more computerized and eventually networked solution based on medical records (left side). The key to success is to be able to scale along these three dimensions (the colored dotted lines) while always ensuring that the overall system is functioning. This scaling is dependent upon standards-based HIS.  Figure  SEQ Figure \* ARABIC 1 Step-wise approach to ICT-based HIS Identifying the steps along the various dimensions helps in designing phased project plans where learning from experience is a crucial element. What you learn from applying the technology to your context in a first phase (e.g. implementation in a few selected districts) should greatly inform how you implement in step 2, (e.g. when you scale up to implement in the remaining districts). How technology can help HIS Applying technology successfully is a costly business, therefore it is critical to prioritize. Not everything must be computerized, and certainly not all at the same time. A key question is: Where do I gain the most by computerization? The answer depends on organizational needs and priorities and should be reflected in a strategic plan. Table 1 lists a few basic insights (a non exhaustive list) to how technology can improve HIS: Table 1. Function How technology can make a differenceData processing and analysisBy spotting trends and correlating data across health programs a health manager is more likely to understand why, when and how his population gets sick, and monitor core services and interventions against targets. Managing logisticsEasily spot gaps and needs in complicated supply chains like cold chain, drugs supply, and human resource distribution Rapid notificationAutomated triggers and alerts enable rapid warning of important events.Point of care supportHaving all relevant historic patient data available at the point of care improves health care delivery, increases efficiency of services, and can provide life-saving information. Information presentationCharts, maps, dashboards, and tabular overviews of data make it easy to identify the important information in an ocean of data. Communication and reportingEmail, instant messaging, and Skype enable closer communication and collaboration among geographically dispersed units. Electronic data transfer eases logistics and assist in complete and timely data reporting. Data storageStore more data more effectively, with greater access, over long termData accessShare and display correlation of data more efficiently with vested actors, including the patients themselves. Data qualityComputer systems can implement data quality measures, and electronic reporting and processing can reduce the dependence on manual reporting and aggregation, common sources of data quality problems.Key principles for technology projects in HIS No matter which of the above mentioned business model or type of ICT solution you plan to procure, if you follow the key principles listed below you have a better chance of succeeding with your ICT project. Make sure organizational and not ICT needs drive the process. When this is the case, the users will take ownership and the system is more likely to meet the needs of your organization. If users feel instead that the system is being imposed on them, it will be much more difficult to achieve buy-in and user adoption. A thorough understanding of business processes, policies, and procedures will ensure that the system design can support the organizations day-to-day operations and management needs. Prioritize a well-written requirements specification. This as it is the critical basis for defining the solution and setting expectations between all parties about what the solution will or will not do. It is critical to establishing trust between all parties, because the requirements specification is a promise, a commitment, between parties. Design for your own context and capacity. The design has to take into consideration the constraints of the context where the deployment will take place. The design must call for hardware and software that are well adapted to the existing capabilities of the context, or the projects specification must include features to bring new capacities to the context. This subject is of utmost importance, because it is easy to choose equipment that is technically capable of the goals, and then to deploy it, but to find the project is still a failure because the ICT deployment outstripped the capacity of the context. It is critical to analyze these capacities during the planning stages and put in place the human resources and other prerequisites before implementing the project. Apply technology in a step-wise approach within a larger framework. While focusing on the big picture, there is also a need to break the problem up into smaller manageable parts, and to apply technology in a step-wise manner in a long term plan. The all at once projects nearly always fail, especially in resource constraint settings. As a rule of thumb, scale up your ICT usage according to your available resources. Keep in mind a changing context. The health sector is inherently dynamic, with new diseases, classifications, diagnostic possibilities, actors, and reporting requirements changing relatively often. Take this into account, and be aware of the costs and ease of adding these new requirements. Can small changes be done in-house, such as designing new reports, or will also this be part of the contract for external maintenance? A certain level of flexibility of the technology should be addressed in the requirements specification. Facilitate a participatory approach and build local ownership. ICT projects are likely to involve big changes on existing work routines and many projects fail due to lack of change management and a too top-down approach to the implementation process. A participatory approach where key stakeholders from all user groups are actively involved in decision-making around requirements, design and use will help to reduce the risk of implementing inappropriate solutions, and build the necessary local ownership needed to drive the process also after the technology has been installed. Focus groups, collaborative workshops, and on the job design sessions are some of the possible participatory methods available. Make sure to have clearly defined communication channels both before and after the technology has been put in use to facilitate user feedback, and strive to keep this communication as transparent as possible. View software procurement as a long term engagement. There must be budget covering the Total Cost of Ownership (TCO), meaning not just software and implementation costs but also the ongoing, long-term operational costs. A TCO calculation includes not only the cost of implementing the system but also the recurring or ongoing maintenance costs over the course of three to five years. Only when the TCO incorporates these hidden costs will a decision-maker have a more reliable total covering the short and long term cost estimate and be able to decide whether his/her organization is willing to bear the cost. It is strongly recommended that the IT manager work closely with the finance or administration manager calculating the TCO, because many of these costs require familiarity with IT processes and level of effort to develop an accurate cost estimate. See Annex F Hardware modules. Be aware of intellectual property rights. These can have important consequences for your project. If purchasing a proprietary system you need to ask how you will be able to make modifications and who will do it. Open source software provides more flexibility here. More details on licensing in Chapter 4. Contracting and Licensing 4.1. Models for software acquisition and implementation Once you have decided to acquire and implement an HIS, you must next decide which approach to take. Today the main options for acquiring and implementing IT applications are: Build the application from scratch, also known as custom development and host it in-house Buy a commercial off-the-shelf (COTS) software package and host it in-house Outsource or rent the software and hardware from a software-as-a-service (SaaS) provider In reality many organizations employ a hybrid of these options in their IT environment. Software may be purchased but systems hosting may be outsourced. Also, proprietary or open source solutions are possible within any one of these scenarios (in the buy or outsource cases, this refers to the vendor using proprietary or open source software in their solution). The main differences between each option lie in who is responsible for building and supporting the software, who owns the software (depends on choice of software), and who owns and supports the hardware servers and networks. This is illustrated in the table below: Table 2. Task Responsibilities for Each Implementation Option Responsible Party TaskBuildBuyOutsourceOverall System ResponsibilityMoHMoHMoHRequirements DefinitionMoHMoHMoHSoftware Design, Development, Test, and SupportMoHVendorSaaSSource Code OwnershipMoHVendorSaaSSoftware Enhancements and UpgradesMoHVendorSaaSServer and Network Procurement, Support, Maintenance, and MonitoringMoHMoH SaaSSystem Security, Backup and Recovery, Disaster RecoveryMoHMoH SaaSGeneral Time for ImplementationLongestMedium Shortest In case of a buy or outsource solution in which the vendor is using OSS, source code ownership and use may be delineated in more detail. For instance, customizations to the source code may be owned solely by the customer, while core functionality and procedures may be owned by the vendor but the customer has the right to reuse and modify this code. It is important to note that overall system responsibility always lies with the customer, the Ministry of Health. For instance, a ministry may choose to use a software development firm to build a system from scratch or customize a COTS, but it does not relinquish control to the vendor; it still supervises and manages the vendor. One must never outsource the management of the health information system, which includes the policies and procedures, data definitions, and overall manner in which the system will be used. In addition to the keys to success and sustainability outlined in the Executive Summary, each acquisition option depends on additional criteria in order for that approach to succeed in the long term: Table 3. Success Criteria for Each Implementation Option Acquisition and Implementation OptionMain Success CriteriaBuildStable, qualified, and experienced IT staff and management Availability of qualified IT professionals in the local market Stable and sufficient internal infrastructure for in-house hostingBuyStable, reliable software package that meets most of the requirements Qualified, reputable, viable software vendor Enforceability of contracts and service level agreements (SLAs) Stable and sufficient internal infrastructure for in-house hostingOutsourceStable, reliable SaaS solution that meets most of the requirements Trusted partnership with the SaaS provider Explicit contracts and service level agreements (SLAs) Enforceability of contracts Stable network connectivity and sufficient network bandwidth with the off-site data center  4.2. Total Cost of Ownership (TCO)  The Total Cost of Ownership (TCO) can vary greatly depending on the given approach and situation and should be a prime consideration when making an acquisition decision. The TCO is the cost of owning and operating a system over its lifespan. It starts with initial requirements definition, to software and hardware acquisition, implementation, training, support and maintenance, and as a rule is calculated over a five-year period. Over the long run, the largest contributing costs to TCO come not from the initial license fees but from the ongoing maintenance and support costs of operating the system, which include the support contracts, IT staff salaries, hardware replacement costs, application support and development costs, facilities costs, ongoing training and documentation costs, and management costs. Each option has different cost characteristics. For example, a COTS will require up-front license fees while an OSS solution requires none, but both incur many of the ongoing costs mentioned above. In the case of SaaS, much of the ongoing cost is bundled into the monthly subscription fee and the SaaS vendor bears the burden of staffing, salaries, hosting, etc. The MoH must be prepared to support the TCO by budgeting accordingly for it in subsequent years. There can be long-term implications from the system choice made. It may require a change in policies or organizational structure. In some countries, for instance, the ministry is more accustomed to budgeting for a large equipment purchase for the next year than allocating funds for a monthly or yearly recurring support fee. Additional staff may need to be hired and salaries may need adjustment to be able to attract and retain qualified IT personnel. Hardware may need to be replaced in the third or fourth year, support or maintenance fees may increase in later years, and additional customizations or enhancements will be needed. See Annex A for a detailed listing of the components of the TCO. 4.3. Request for Proposals (RfPs) A Request for Proposal is a document used to solicit bids for a project, goods, or services, whether it is a health information system, equipment procurement, or a feasibility study. Many organizations have policies requiring that an RfP be issued for projects over a certain value to help ensure an open and transparent procurement is done. The RfP clearly lays out the requirements, evaluation criteria, and evaluation process. The hope is that the RfP will generate several responses from serious bidders and through this competition, lead to the selection of the bidder that best meets the requirements at a fair price. The policy of some institutions requires that the award go to the lowest bidder, but price is not always the best indicator of overall value, especially in the case of ICT. It is the combination of fit to requirements and price, as well as other factors that should be specified in the RfP, that determine best value. Components of an RfP Many different formats for RfPs exist. If the project is donor-funded, there may be a donor template for RfPs, but it must be adapted for HIS projects. Many donor RfPs for development assistance projects do not contain the level of detail required by IT projects. Conflicts between vendor and customer (countries) commonly arise from a miscommunication about the requirements or the contract, so it is critical that countries take ownership of the process. Some donors have a process in place to verify that the IT selection followed due process and showed that due diligence was performed. The USAID document ADS Chapter 548, Independent Validation & Verification (http://www.usaid.gov/policy/ads/500/548.pdf) describes the requirements for USAID projects spending over $100,000 in IT over the project life. The IV&V review process establishes a means for ensuring investment management, information security, and systems development life cycle management policy compliance. While IV&V recommendations are not binding, countries may request it. ADS-548 is the USAID response to US law 40 U.S.C. 1401 (The Clinger Cohen Act), which directs US Federal agencies to establish clear and concise direction regarding investments in major information systems and to enforce that direction through the budget process in order to ...resolve implementation of ineffective implementation systems resulting in waste, fraud, and abuse.... USAID, The Global Fund, and PEPFAR fall under this jurisdiction. Additional legislature applies to bids from EU countries, and work is in progress to explore the available protections. Although RfPs differ in format, they should contain the following sections: Instructions on the bidding and proposal process This section describes in detail the process and procedures for the proposal, such as who is eligible to bid, the deadline for bidders to submit questions, the actual bid deadline, the review and evaluation process, and the criteria for award. Some offerors can be very prescriptive and specify that the proposal be emailed, or that a specific number of copies must be bound, put into a sealed envelope, and delivered to a specific address. Background or Current Situation This section describes the context of the project, starting with the broader social, economic, and political context of the country and organization that is seeking bids, as well as the IT environment. The IT environment will describe the current levels of IT usage, existing systems and technologies, and current human capacity within the organization. It may also refer to other projects that may impact the proposed system. Scope of Work This section describes in detail the work the bidder is expected to perform. It would likely include expected deliverables, a suggested timeline, and a list of key personnel and the qualifications they must meet. For an IT project this section will describe the expected services throughout the software development life cycle (SDLC). Proposal Format Some donors or organizations are prescriptive about the proposal format. Some will specify a page limit, which font and font size to use, and the document must be in a specific version of Word or must be a PDF. It is common for the offeror to specify the actual proposal outline, section by section, to ensure uniform submissions from each bidder. Having proposals follow a consistent format makes it easier for the offeror to review, compare and contrast bids. Requirements This should be a detailed, lengthy section for an HIS RfP. The requirements for the HIS should include the business, functional, technical, training, support and maintenance requirements. These classifications are illustrative; they may be reorganized or reclassified to better fit a particular institutions needs. Below is a very short list of example requirements to illustrate the types of requirements that should be included in an RfP and system specification: General Bidder must provide a proposed phased implementation schedule and explain its approach Bidder has a presence in the country and has good implementing partners on the ground Bidders in-country and offshore teams work closely together Bidder has previous experience implementing at least three similar systems in the region Bidder has an acceptance process for testing and approving code before presenting it to users to test Functional Need to be able to retrieve a patient record and see a dashboard that shows a brief (one line) description of the last three visits, diagnosis, and treatment, as well as vital statistics (age, gender, marital status), home village Data Need to accommodate more than one type of patient ID. Need to integrate with the national ID system. Need to prevent duplicate entry of a patient. Reporting Ability for users to create their own reports Ability to use GIS data to do buffer analysis Technical System conforms to open, internationally-accepted data standards (specify at least one) System interoperates with [open source/proprietary] system X. Please provide examples of your installations that interoperate with system X, describing the size and scale of the systems in terms of number of users, number of clients (if client/server), number of transactions per day, etc. System offers the ability for minor modifications to be done by non-technical staff (please list the types of modifications that can be done) Architecture of the system must be scalable; expanding from 10 to 100 clinics should not require ten times the network capacity or staff to support it, for example Operational Bidder must provide telephone support during MoH business hours of 7 am to 5 pm. Live and scheduled backups of the system must be possible. Security System conforms to information security policies specified by the [MoH, MoICT, international specification, etc.] (ministry security policy is attached in Appendix xx) Audit trails, reports, and logs that track system access and usage are available to authorized personnel to review Option to encrypt certain information Limited ability to extract data from the system for import to other systems except by authorized personnel Performance Record searches should take less than three seconds on average At peak hours the system should be able to support up to 100 simultaneous users with no degradation in performance Business Requirements System must go live two months before the beginning of the school year so that vaccination notifications and reminders can be sent via SMS Must be able to integrate with the insurance system within six months after going live (Phase 2) Legal and Regulatory What data privacy policies does this system conform to (e.g. HIPAA if the system has been implemented in the US)? Training Bidder has a plan to build capacity of the local team beyond basic training sessions and manuals to ensure long-term sustainability of the system; please elaborate. Sample RfP Document Annex B provides a sample RfP Table of Contents, and B2 is an example of an entire RfP (ed.note more RfPs to be added). The first one is based on an actual RfP for a non-HIS system and was modified to serve as a template. Content was retained where applicable and made generic or modified for the HIS context. The second sample RfP is an actual RfP for a health indicator system. Both are provided so that the reader may develop their own RfP document based on the structure and content most applicable to them. The first template contains a few sections that may be considered optional: Bid Security and Performance Security. The purpose of a bid and performance security is to protect the organization requesting bids, in this case a ministry of health. The bid security is used to guarantee that the bidder will execute the contract at the bid price if awarded the contract. The amount of this security can be set as a percentage of the total contract value, such as 5 or 10%, or a fixed amount. Proposals submitted without a bid security are rejected. Winning bidders who do not enter into a contract will forfeit their bid security. The bid security is returned to the losing bidders. The performance security is used to guarantee satisfactory performance and completion of work. These securities may take the form of a bond or a certified or cashiers check. These securities are more typically required for construction projects but may be employed for other projects if warranted (project value is high for instance). The bid and performance securities help to ensure that only serious bidders will apply and helps eliminate bidders who may be less financially stable and therefore less able to successfully implement the system. Data Room. The purpose of the data room is to enable bidders to review confidential documents and materials that may be necessary to understand in order to create an informed response to the RfP. These materials are available in a secure environment, in a physical room that is monitored, but increasingly secure web sites serve the same purpose. There may be some HIS projects which will require this process, but many may not. 4.4. General Vendor Evaluation Process and Recommendations The following is a brief set of recommendations to follow when evaluating vendors. A scoring sheet and additional tips are in Annexes C and D. Implementation Approach With outsourcing, try to select a system that can be brought in-house later, to give themselves more options in the future. Ask where the data is hosted. Some countries have laws or regulations governing the use, storage, and location of data originating from the country. Ask for periodic data dumps from the system. Having multiple copies of data external to the core system creates security issues however; the more copies in circulation, the more opportunity for a copy to fall into the wrong hands. Select a system that will establish a foundation for future needs and growth and not simply satisfy todays needs. Vendor Evaluation Put together an evaluation and selection panel comprised of a cross-section of stakeholders from different departments, with different technical skills, ranging from the managerial to the staff level. In the beginning, accept what the vendor says. Keep an open mind, have patience, and ask a lot of questions. After whittling the vendors down to one or two finalists, however, be less accepting. Question everything. Make sure you have the facts and verify. Be persistent until you get your answer. Do not rely on demos alone. If the vendor did not bring a technical person such as a sales engineer to the demo meeting, ask to meet this person. For a major acquisition, ask for a meeting with the chief technology officer or director of the technical team to get an explanation of the application and system architecture. Vet the quality of their software engineering practices because quality is designed and built in from the beginning; it is not added after the fact. Ask about the vendors customer support processes and systems to ensure they have a system for tracking and closing problem reports. Ask to meet the key personnel who would be assigned to the project, such as the project manager and lead developer or architect. Do not let the vendor take control of the process. Manage the evaluation and selection process and steer the vendors to respond to your needs and questions the way you want them to. Ask for a formal presentation, a functional demo, and a technical review. Specify the time for the vendor presentation and even each section. E.g. Two hours total for the presentation, and ten minutes only on the corporate background. Define exactly how the vendor should respond to your RfP and counteract optimistic responses by defining the answer choices and the meaning of the answers: yes means the functionality exists now; no means it does not exist; maybe means the vendor would be willing to provide it if paid to do it. Otherwise the vendor may try to indicate that features exist that do not actually exist yet. There can be a separate section for the vendor to expand on their answers and say anything they want about the product, such as a description of features due in the next release (see the RfP section for more information). The product should be mature. Maturity can be measured several ways: there should be several installations that are live and operational, preferably for at least one year; there is a large community of users and developers for the system that is active (this applies particularly to OSS solutions but can apply as well to proprietary systems), that is openly sharing best practices and assisting each other. Reviewing Bidder Responses to an RfP Annex E shows a sample checklist that each reviewer should follow while reading and analyzing a bidders proposal. This checklist contains items that could eliminate a bidder immediately from consideration, and ensures that bid reviewers are applying the same criteria consistently. Sector, country or donor-specific conditions or preferences are possible and should be added to the checklist if they are important, make or break criteria, such as multi-lingual requirements, country of origin for the goods or services being procured, or in the case of HIS, a record of successful previous implementations of the HIS in other ministries of health in the region with a similar population size. Items highlighted in yellow are boilerplate text that should be substituted with a program or proposals specific text. Recording your Evaluation of a Bidders Response Annex C also contains templates for reviewers to record their evaluation of a bidders response to an RfP. There are multiple tabs for each type of requirement and a summary sheet that calculates in table and bar chart form how well the bidder met each type of requirement. Within each set of requirements it also calculates a weighted score of a requirement based on its importance (mandatory, optional, nice to have) and the reviewers score. The reviewers score is given on a scale of 0 to 7, with 0 meaning The function/feature is not available in current release and is not being planned for a future release and 7 meaning The function/feature is available and completely operational as part of the application software. A few sample requirements are provided within each tab and in some cases there is a more extensive list (this scoring sheet is based on an actual scoring sheet for the evaluation of a non-HIS system). The requirements, relative weights, and importance of each requirement are purely illustrative and are incomplete. The ministry should add its own requirements and update the importance and relative weights according to its own needs and priorities, or delete as it wishes to conform to its own evaluation methodology. The table and bar chart in the Summary tab are useful to include in reports to anyone concerned to demonstrate that a systematic and fair process was applied to evaluate each bidders response. An example from a non-HIS system is given below to illustrate the final result that appears in the table and bar chart once all the scores have been entered: WeightScoreFitnessFinal ScoreFunctional Requirements 55%96.9%53.3%60.0%52.3%Technical Requirements15%97.4%14.6%Solution Design15%54.2%8.1%Successful Implementation15%74.0%11.1%Methodology and Approach40%81.5%32.6%40.0%32.9%Vendor Capability and Track Record30%76.2%22.8%Training20%96.0%19.2%Post Implementation Support10%77.0%7.7%Final Score :85.2%  4.5. Contracts 4.5.1. Components of a Software or Hardware Contract A contract to purchase software and hardware involves several components. There is no one standard type of contract, but common components of a contract include: License fees (software) or Purchase price (hardware) Installation fee Support, Warranty, and Maintenance Service Level Agreement (SLA) Training and consulting All providers of an HIS to a ministry should provide some form of a contract or memorandum of understanding (in the case of non-commercial providers such as universities) that stipulates the fees and services they will provide. License/Subscription fee. When a buyer pays for a software license, the buyer is purchasing the right to run the software on one or more computers. The software provided is the executable code, not the source code (this is elaborated on further in the Licensing section which also covers open source licenses). An *.exe file in Windows is an example of an executable program. The license to run executable code is often called a runtime license. Documentation such as user guides, reference guides, and installation guides are usually included either in paper form, on CD, or on the vendors web site. With outsourcing or software as a service (SaaS), the customer rents the entire platform, both software and hardware, from the provider, by paying a monthly subscription or rental fee that covers all of the software and hosting services. Hardware Purchase Price. The purchase price of hardware may include a warranty, in which parts and labor are covered, typically for three years for desktop computers, laptops, and servers. Printers and other devices may have a warranty period of one year or less. Each manufacturer has its own policy. If there is any failure due to defects in the product or defective replacement parts during the warranty period, the hardware can be shipped to the vendor or authorized service center for repair with no shipping charges and parts, labor, and repair are covered at no additional cost. Installation fee. For more complex or specialized software (an enterprise scale system such as a patient medical record system, versus desktop software such as word processing or spreadsheets), there may be an installation fee. The fee covers the cost for the vendor to install and configure the software to work in the customers environment. Depending on the complexity of the product, the installation service may be required or optional, and may be provided by the vendor itself or by third parties such as consultants or vendors or partners who are certified to implement the software. If the buyer has qualified IT staff it may be possible for the buyer to install and configure the software itself. For more complex or specialized hardware, such as telecommunications equipment, the situation may be similar. Support/maintenance and warranty. For software, a support or maintenance fee is usually priced at a percentage of the license fee, such as at 15-20%, and is paid annually. For hardware such as servers and PCs, support and warranty is often included in the purchase price. A three-year warranty on hardware is fairly typical when purchasing major brands of hardware through an authorized reseller or dealer. The support or warranty agreement entitles the buyer to obtain technical support for the product and includes bug fixes, patches, upgrades, security alerts, and documentation. Usually vendors offer several support packages to provide a range of support at different price points, which correspondingly include varying levels of service. At basic levels the response time will be slower and access to human support resources will be more limited. There may only be the ability to email the technical support department with questions and access an online repository of known problems and solutions. There may be incident-based plans, where one pays on a per-incident or per-call basis instead of purchasing an annual support plan. This type of plan is designed for the budget-constrained or those who dont anticipate the need for ongoing support. The average level of service and most common type of support agreement will include the ability to call and speak to a technical support representative and a contractual commitment to receive a call back within a fairly short time, for instance one business day. At advanced support levels customers receive the fastest response time and dedicated resources. Vendors may offer support seven days a week, 24 hours a day, 365 days a year (7x24x365). For hardware, advanced support could include hot swaps (spare hardware pre-configured to match your system and kept on hand) and on-site repair and replacement. Most health ministries will not need this advanced level of support, but the HIS manager should have a very good understanding of their support options and what is included and excluded for the price she is paying. Warranty considerations. Since a three-year warranty on hardware is fairly typical, most IT departments should budget to purchase replacement hardware three years after the purchase. Otherwise the IT department will have to pay for repairs after the warranty expires and the money may be better spent on purchasing new hardware that comes with a three-year warranty, is based on current technology, runs faster, and has readily available spare parts. The old hardware may still be performing without problems, but the older the hardware is, the less likely that parts will still be available for that hardware model. Service Level Agreement (SLA). An SLA defines the specific terms for the support service the vendor provides. Terms of service such as hours of support, response time commitments, issue resolution process, notification and escalation procedures, and maintenance windows are specified. The SLA is especially important if some part or the entire system is hosted off-site and maintained and/or monitored by a third party, because the SLA will also include monitoring and administration responsibilities and commitments such as backup and recovery, and penalties if the third party vendor does not meet the SLA. For instance, if there is a system crash and the time to restore the system exceeds the time specified in the SLA, the vendor pays a penalty or forfeits part of its fee. Training and Consulting. Training and consulting services may or may not be included as a standard part of a software or hardware sale. A discounted price, a specific number of hours, and types of training or consulting can be negotiated to be included in the contract. Data Security/Privacy. The contract should specify how and where it hosts the data, who can access it, and who can use it. A country may have laws governing the use and storage of health data in both paper and electronic form. End-of-Life. Eventually a vendor will decide to stop producing or selling older versions of hardware and software and they will announce the end of life (EOL) or end-of-sale of the product. They usually will not do this until several years after the product has been on the market and they give several months notice. End-of-life policies can be found on vendor web sites. The end-of-life of a product is mentioned in this guide because in some parts of the world people are running very old systems. The managers of these systems will need to weight the cost/benefit of continuing to run these old systems versus upgrading. HIS managers need to have a plan and budget in place to track the software and hardware versions of their systems. Vendors will usually announce the EOL of a product several months in advance. The reputable firms do not simply cut their customers off from all support and services on the EOL date. The process often includes the company providing basic services for as long as five years after the EOL date. After this post-EOL period has been exhausted, however, customers on these outdated versions will be on their own or will need to find support from someone other than the vendor. The EOL situation only affects customers who own the hardware and software that they are using. If they are using a software-as-a-service product (SaaS), they never need to worry about the EOL of the software or hardware because the SaaS provider has that responsibility. The SaaS provider is responsible for the overall performance and reliability of the system, and fulfilling that responsibility includes keeping systems up-to-date on current versions of software and hardware. 4.5.2. Contract Negotiation and Pricing Nearly everything is negotiable. The following is just a subset of possible hints and tips that may apply to your negotiation. (Editors note: more negotiation ideas can be provided in additional Annex) General Recommendations Look for leverage does the salesperson need to make quota by the end of the month, is their compensation based on commission, is this system a strategic entry point for this vendor to get future business within the ministry or other parts of the government, creating an incentive to accept a lower price or make other concessions? Anything that gives the IT or public health manager sleepless nights should be included in the selection criteria when selecting the system, negotiated, and addressed in the contract. For instance, if the manager is worried about data security, they should include this as one of the technical requirements that the vendor must address. They should ask the vendor to provide a description of the softwares data security features and demonstrate that the security solution is functional. If the vendor does not meet these conditions and this is an absolute requirement, do not buy the system. Make sure terms are clearly defined. For example, if there is a per-transaction fee, what is the definition of a transaction? You do not want to pay per transaction if 70% of your transactions are searches and 30% are record inserts or updates. Do not sign the contract (i.e. commit funds) until you have complete stakeholder agreement for the project. Get this agreement in writing. Pricing Usually for-profit vendors have a different pricing structure for the public or non-profit sectors, offering steeper discounts on both the product and support, sometimes as deep as 50%. If they do not mention such a discount, ask. Payment terms and schedule should be explicitly stated. Try to create a payment schedule that is based on reaching milestones and rewards performance. Ask the vendor what their usual price increase is each year for the next three to five years for support or service. You need to be able to budget for these increases and you need assurance that these increases are reasonable. Any cost-sharing or in-kind contributions should be clearly documented and agreed upon by all stakeholders involved. For instance, a donation of computers or mobile phones should be detailed in writing: quantity, condition (new or used), technical specifications, date of delivery, name of the party making the donation and party receiving the donation. There are fixed price contracts or time and materials contracts. Fixed price is more common because it is easier to control cost, but there may be reasons to choose time and materials and still contain the cost. Fixed price is usually also tied to a fixed scope for a certain scope of work, the vendor will be paid a fixed price. If the client requests work that is outside of the scope, the vendor will charge for the work involved with the scope change, so clients should evaluate the cost/benefit of a change request before authorizing the change. The time and materials form of a contract is not as favorable to the client, because the cost can grow. This type of contract may be used, however, when the cost cannot be determined up front and taking a fixed price approach could result in the client setting the price too high and paying too much. The client can put an upper-bound on the cost, however, to mitigate this risk. (PRICE EXAMPLE we could insert examples from actual providers) 4.6. Licensing 4.6.1. Licensing Schemes Companies have created many licensing schemes. There are server licenses, for software that runs on servers such as web servers, application servers, and database servers and support many simultaneous users on the server, and client licenses, which run on personal computers such as desktop machines and laptops and support just one user of the computer. The customer must buy a client license for each desktop PC or laptop that will run the software. Site licenses give the customer the right to install and run the software on an unlimited number of machines as long as they are a part of that site (could encompass the entire organization or one physical location such as the headquarters). Server licenses can be based on the number of user accounts created in the software, the number of concurrent users (users simultaneously accessing the software at any one point in time), the number of client PCs in a client-server environment, or the number of CPUs on a server. There are also licenses based on the type of system environment. Development licenses are used to run software on development machines (the development environment) so that in-house developers who are building an application from scratch or creating customizations to a commercial-off-the-shelf package (COTS) can use the vendors development tools or programming languages. Test licenses are for running software in a test environment, which is a set of servers used only to test the application. Finally, there are licenses for running the software in the production environment, the set of servers hosting the live system. Pricing is lowest for development licenses, highest for production licenses. Open source refers to software whose source code is available to others to use, modify, and redistribute at no cost. The license to use open source code is available for free. The cost to access the source code, whether in original or modified form, should be reasonable and most often, free of charge. These systems can be installed either by downloading them directly (often the case when free) or by contracting a vendor to modify and implement it. More and more companies are emerging to develop and support open source applications, basing their business model on charging for implementation and customization services and technical support instead of a software license. 4.6.2. Source Code Ownership, Customizations, and Escrow Typically, for proprietary software, one purchases a runtime license, which allows the customer to run the software but not access the underlying source code to change how the software works. The runtime license allows the user to run the executable program, which is the code compiled from source code and is run on desktop computers and servers. A source code license, on the other hand, gives the customer access to a copy of the source code which they can then change and customize according to their specific needs. The appeal of having access to source code is that one is less dependent on the vendor for changes, or is less locked-in. With proprietary software it is rare to be able to acquire the source code. The primary reason is intellectual property: the company made the investment in developing the software and wants to achieve a return on its investment by reselling the software. Another reason is that once a customer changes the source code, the vendor cannot be responsible or liable for the quality and stability of the system because it is now out of their control. Vendors often provide features such as form and report builders to allow customers to customize the software in a manner that will help ensure compatibility with the product architecture and design. When considering the need to customize software, be sure to ask the vendor if they will support the customizations and how, and if an upgrade path will still be possible. You do not want to create a situation where you are unable to take advantage of new releases, product updates, upgrades, patches and bug fixes. Before customizing any code, first ask the vendor if the customization is a feature that the vendor is already developing or is planned or would consider for a future release. If so, it may be better to wait for the future release if the timing is not an issue. In some cases a vendor may be willing to transfer ownership of source code to a customer. The customer can then change the source code at will. Customers who choose this path must be fully aware of their responsibilities in this case, as it is likely that the vendor will not support the product if the customer has changed the source code. The customer will need its own team of IT professionals, either in-house or a third-party, experienced with software development practices, source code management, version control and release management, and the technologies and system environment necessary to develop the software. Open Source and Proprietary Code The current debate about open source versus proprietary technology tends to pit the two against each other as an either/or choice. The reality is that usually there is a mix of both open source and proprietary technology in an IT system. It would be common for instance to have an open source operating system such as Linux and a web server from Apache integrated with proprietary technology for the application or database or reporting tools. Often-cited reasons to use open source software (OSS) include lower acquisition costs and the control and flexibility through access to the source code, amongst other reasons. These two reasons may be high priority requirements in some cases, lower in others. Requirements and human resources and other constraints should be the driver behind choosing a technology. For instance, for the operational components of a software system, such as the operating system, database, and web server, changes to the core functions such as memory and process management are unlikely to be needed and therefore would not be the reason driving the choice of OSS for these components. Performance, security, scalability, reliability, cost, and other reasons would be higher priority requirements. At the functional levels of the system, mainly the application software where the functionality, rules, and processes are implemented, the freedom to access the source code to customize the software would be an important requirement, as well as cost and other requirements. Open source may provide the most flexibility, but if the skills to maintain the software cannot be found locally or at an affordable rate, then other technology choices need to be considered also. Source Code Escrow One reason this guide was created is that many ministries of health are concerned about the long-term viability of the software firms providing HIS software. A software firm may go out of business, leaving the ministry with no access to the source code and therefore no ability to maintain and enhance the software. One method to mitigate against this risk is to put source code into escrow. A source code escrow can be thought of as insurance against the vendor going bankrupt and a customer losing its ability to maintain and ultimately use a critical software system. When source code is put into escrow, the source code and related documentation are put into an account held by a third party (there are firms who provide this service). If the vendor goes out of business or somehow fails to meet its contractual obligations, the customer can take possession of the source code and documentation. The customer should stipulate that the vendor regularly update the source code in the escrow account with every patch and perform audits to verify that the version of the source code in the escrow account is the version that was compiled to generate their executable file. A few online resources that provide guidance and an example of an escrow contract are listed below. These documents are provided only as an information resource and starting points for you to develop your own policy and do not imply an endorsement from WHO/HMN about the completeness or quality of these documents. Guidance on source code escrows:  HYPERLINK "http://www.ncc.co.uk/research/projects/escrow_guide.cfm" http://www.ncc.co.uk/research/projects/escrow_guide.cfm Example source code escrow contract: http://www.jian.com/software/business-contracts/sample-contract/software-source-code-escrow.pdf 5. Project Management Successful implementation of software to support an organization's information system depends 20% on the software product and 80% organizational change. In contexts where information and communications technology (ICT) skills are scarce it is even more important to emphasize this part of the equation when planning ICT projects, which should be reflected in both the level of complexity of the proposed solution as well as the business model. Be flexible; your project management process should contain continuous monitoring and feedback outline the major milestones, but how you get there may vary day to day customs may hold hardware for 3 months, or perhaps you will have no power for 4 weeks. Be pragmatic. Human resource considerations Maintaining complex software solutions is difficult and requires advanced skills and experience. Staffing / HR resources required to scale up the HIS must be in place including IT resources, which must be available at all sectors for successful implementation of health information systems. Consider that high staff turnover may happen set a plan for ensuring sufficient personnel capacity throughout the system life-cycle. Outsourcing all (incl. running the software) or parts of the process is a potential business model, and that might help to take pressure off local staff, but local capacity will be needed eventually to drive and control the process. The ICT team you choose must be able to communicate between health care and ICT fields, and identify with local user needs in order to keep the software functional and relevant in the long term. Finding these locally available and skilled ICT people may not be easy. There is a maturity process related to managing ICT, and a step-by-step approach has been suggested (see chapter 4) to allow an organization to address the problem in manageable parts, learn from experience, and to gradually build up capacity that allows for scaling up the ICT effort accordingly. Given the scarcity of skilled ICT staff within the public sector, it is recommended to share ICT maintenance across departments within an organization and also with other sectors at the same administrative level. A great number of the maintenance tasks like network and server support, and database administration will be similar across projects, despite differences in software functionality. In the long term, capacity building should involve ICT and information systems departments at local academic institutions and universities. Internships and student involvement in HIS projects are possible means to build relevant capacity and to recruit future graduates for your organization. When choosing the right technologies for an ICT solution it might be relevant to check with local ICT curricula what is being taught to the future ICT cadres to better align with local ICT capacity. Through collaboration with academia and by providing hands-on learning from real projects it is also possible to influence the curricula towards more relevant technologies. Project management considerations The goal of an ICT project is a successful implementation and a sustainable solution. Based on years of HIS implementation, the following are critical to success and sustainability: There must be clear understanding of the problem that the information system is intended to solve and a clear benefit to be gained. If the problem is not clear, the solution will not be clear. The vendor and customer (government) should agree upon project management methodologies, and document them to ensure adherence. If templates from previous projects are available, consider using them. For large projects, consider commissioning an independent external review of the project, as well as the approach and budget, before the project is launched. For smaller projects, it is helpful to request a review by someone knowledgeable of assumptions & risks, but this should also be someone who is not invested in the project. A senior-level project champion is the key to establishing buy-in, ownership, and acceptance of the system by the rest of the organization. S/he will facilitate the change management process, and know how to navigate the organizational politics and bureaucracy to get things accomplished. Also, include provision for change requests; document changes required so that it is clear to all parties when sign-off takes place. Stakeholder and end-user agreement is critical. Without their support and participation, the requirements and business process analysis will be incomplete, and the system will fall out of use. To reinforce user participation, establish on-the-job training programs, certification and award programs, continuous training programs, and roles for 'super users' or 'power users' who become trainers of new users. A thorough understanding of business processes, policies, and procedures will ensure that the system design can support the organizations day-to-day operations and management needs. There must be budget covering the Total Cost of Ownership - not just software and implementation costs - also the long-term operational costs like salaries. It is critical to have the IT manager work closely with the finance or administration person calculating the TCO. An organization that has an information and process-driven culture is a prime candidate for success. They will likely maximize the usage and benefits of the IT system and find innovative ways to enhance the system and use the data. A strong, competent team, with a sense of collaboration amongst the users, vendors, and other parties, will deliver the results people are expecting in spite of the inevitable frustrations and missteps on the project. When results are visible, even those resisting change may eventually voice their agreement. ANNEX A Total Cost of Ownership: See separate Word document ANNEX B Sample RfP Table of Contents - below ANNEX B2 Sample RfP See separate Word document Below is a sample table of contents from an RfP template for a hypothetical HIS. This corresponds to the sample RfP document also included in this Annex. SECTION 1 INSTRUCTION TO BIDDERS51.1 Background61.2 Introduction61.3 Eligibility of Bidders61.4 Definitions81.5 Schedule of Events91.6 Inquiries101.7 Preparation and Submission of Proposals111.8 Multiple Proposals121.9 RFP Changes and Addenda121.10 Rejection of Proposals121.11 Proposal Obligations131.12 Disposition of Proposals131.13 Proposal Clarification Process131.14 Proposal Preparation Cost131.15 Notification of Award131.16 Release of Claims141.17 Bids Validity141.18 Bid Security (OPTIONAL)141.19 Performance Security (OPTIONAL)141.20 Examination of Bids151.21 Evaluation and Comparison of Bids151.22 Contract Negotiations151.23 Award Criteria151.24 HIS right to vary quantity at time of Award161.25 Signing of Contract161.26 Coming into Force161.27 Payment Terms and Schedule161.28 Prices, Taxes, Duties and Currency161.29 Bids Language171.30 Penalties17SECTION 2 CURRENT SITUATION AT MOH182.1 Current Health Information System Situation at MoH192.2 MoH Preparation for the Implementation of HIS202.3 Data Room (OPTIONAL)202.4 Current Information Technology at MoH222.5 Volume Information22SECTION 3 SCOPE OF WORK233.1 Project Objectives243.2 Critical Success Factors243.3 Completion Criteria253.4 Modules to be implemented263.5 Project Scope273.5.1 Product License, Supply of Media and Related Documentation273.5.2 Implementation Services273.5.3 Acceptance Testing273.5.4 Post-Implementation Technical Support283.5.5 Warranty293.5.6 Training293.5.7 Application (Software) Maintenance and Support303.6 Project Management Approach and Methodology313.7 Data Conversion323.8 Risk Assessment and Mitigation323.9 Evaluation Criteria32SECTION 4 PROPOSAL FORMAT35APPENDIX A FINANCIAL PROPOSAL COST SHEETS45APPENDIX B-M HIS REQUIREMENTS48APPENDIX B FUNCTIONAL REQUIREMENTS50Patient Management (PM)51Disease Surveillance (DS)51Registries Module (RM)51Administration Module (AM)52Additional Modules53APPENDIX C DATA REQUIREMENTS54APPENDIX D REPORTING REQUIREMENTS56APPENDIX E OPERATIONAL REQUIREMENTS59APPENDIX F SECURITY REQUIREMENTS61APPENDIX G PERFORMANCE REQUIREMENTS67APPENDIX H BUSINESS REQUIREMENTS69APPENDIX I LEGAL AND REGULATORY REQUIREMENTS71APPENDIX J TECHNICAL REQUIREMENTS73APPENDIX K GENERAL REQUIREMENTS83APPENDIX L TRAINING REQUIREMENTS88APPENDIX M MAINTENANCE AND SUPPORT90APPENDIX N FORMS92Bid Security Form (OPTIONAL)93Performance Security Form (OPTIONAL)94Unified CV Form95APPENDIX O NON-DISCLOSURE AGREEMENT (OPTIONAL)97APPENDIX P MOH LAW, BYLAWS AND REGULATIONS99 ANNEX C Evaluation of Vendors Score Sheet separate Excel document ANNEX D Additional Vendor Evaluation Tips A general rule when evaluating a third party solution is that it is sufficient for the chosen solution to meet only 80% of the requirements. Not only is it unlikely for a third-party solution to meet 100% of the requirements, but a general lesson learned is that after a system goes live, users priorities often change as they gain experience with and a better understanding of the system. Implementing the last 20% of the original requirements could turn out to be a waste of time and money. Ask the solution provider about their most significant wins and losses in the last year. Evaluate the solution providers financial position. Speak to at least three customer references, preferably organizations of similar size, scope, and sector. Select a vendor who will act as a trusted advisor and partner, with whom your interests are aligned and there is open and transparent communication. Analyze the total cost of ownership of the vendors solution. An initial low price can be misleading if the long-term (five year) cost of supporting and maintaining the system is high. ANNEX E RfP Response Check List The following is a list of checklist items that needs to be monitored and surveyed while reading and analyzing bidders proposals in case any note is concluded then it needs to be shared with the [Program Name] team and discussed during evaluation team meeting. NoChecklist ItemYes/No1Technical Proposal has the following sections: Section 1 Introduction and Executive Summary Section 2 Solution Overview Section 3 Bidder Profile and Capabilities (Knowledge, Expertise, Capabilities) Section 4 Project approach and methodology Section 5 Deliverables of the Project Section 6 Quality Assurance / Quality Control Section 7 Requirements from [name of client or user of the proposed system, such as Ministry of Health] Section 8 Proposed project plan Appendix B Responses to Functional Requirements Appendix C Responses to Technical Requirements Appendix D Proposed Training Schedule Appendix E Maintenance and Support Scope and Methodology Appendix F Proposed Project Plan in Gantt format. Appendix G Other Supporting Material2In the executive summary, has the following been provided: Company Registration certificate and company contact coordinates Year established (include former firm names and year established, if applicable) Type of ownership and parent company (if any) Bidder's contact name, address, and phone number (if different from Item no.1) Audited Financial Statements for the last 3 years Check for any assumptions or recommendations3Bidder is not associated nor have been associated in the past directly or indirectly with a firm or any of its affiliates which have been engaged by [Program Name] to provide consulting services for the preparation of the design, specifications and other documents to be used for the procurement of the [Proposed System] to be purchased under this RfP.4Bidder shall not be under a declaration of ineligibility for corrupt and fraudulent practices.5Bidder owns an established business for at least three (3) years of which they have implemented system and possess qualified and certified staff during the previous three years. 6The proposed application must have at least five (?) implementations in [country A, B, C, and X regions]. Out of those five references, three implementations should have been successfully completed at government institutions. Public health-related references are preferred. 7Bidder must sign and adhere to the non-disclosure agreement located in Appendix G Non-Disclosure Agreement.8The bidders technical proposal does not include any financial cost estimation or proposal.9Bidders proposal has been signed by an authorized officer of the entity submitting the proposal and follows the RfP templates and forms10[OPTIONAL] Has a bid security been provided? Can be checked later when the financial proposal is opened. 11Bidders should provide their requirements for hardware, operating system and Local/Wide Area Networks12The offered package has a multilingual ([language]/English) capabilities and user interface. 13Bidder adhere to perform on-site installation of the supplied systems at [client name] premises and related offices14The bidder is to train the designated [client name]s technical and end-user staff to enable them to effectively manage and use the [Proposed System]15On-site technical support and service obligations during the period from Sunday to Thursday, 8:00AM to 7:00PM for Acceptance test support and 3 months from the date of the Provisional System Acceptance at [client name]s location.16Bidder is to provide technical and user documentation17Bidder provided an approach for data conversion18When opening the financial (commercial) proposal, Bidders are requested to supply application maintenance and support fees for three (3) years after the end of the warranty period (12 months), detailing their scope, upgrade strategy and support methodology19When opening the financial (commercial) proposal, is the bid valid for 120 days. ANNEX F Hardware Modules Separate PDF document  McConnell, Steve. Customer's Bill of Rights, Construx, 2009 <HYPERLINK "http://www.construx.com/Page.aspx?hid=103"www.construx.com/Page.aspx?hid=103HYPERLINK "http://www.construx.com/Page.aspx?hid=1039">  Sometimes before issuing an RfP, an organization may first issue an Expression of Interest (EOI) or Request for Information (RfI). An EOI may be used to develop a short-list of vendors out of those that respond to the EOI. An RfI may be used when the organization is still formulating ideas for its requirements. It may wish to test the feasibility of certain requirements or is seeking guidance about the options available to them. This guide will focus, however, on the RfP.  Examples include Cisco at  HYPERLINK "http://www.cisco.com/en/US/products/products_end-of-life_policy.html"http://www.cisco.com/en/US/products/products_end-of-life_policy.html and Sun Microsystems at http://www.sun.com/service/eosl/index.jsp.  See the specific definition of open source at The Open Source Initiative, The Open Source Definition (Annotated), http://www.opensource.org/docs/definition.php.  Heeks, Richard. Reinventing government in the information age: international practice in IT, London. 2001      PAGE \* MERGEFORMAT 9 From 2007-2009 Belize (pop. 300,000) undertook a nation-wide implementation of a fully integrated BHIS, at a cost of $500,000. This did NOT include the cost of hardware, connectivity, electricity, training, future changes, updates, maintenance, and salaries of the data managers. Key lessons Organizational needs, not ICT, must drive technology procurement Be clear about what you need and how the technology will support that Break up ICT solutions into manageable components, but never forget the big picture and how the components fit together Implementing software is 20% product and 80% organizational change (training, policies, work routines) SW projects tend to fail; so start simple, expand as you learn Software is dynamic and has a life-cycle, so plan for a long term processes, not a one-off event Open Source Software (OSS) OSS has become commonly applied also within HIS, and is gaining momentum in developing countries. Any of the business models described above could apply to OSS, and there are many professional businesses around OSS, mostly linked to providing support, customization and training. This guide does not provide sufficient details on OSS, but here is a very broad overview of pros and cons, and in chapter 6 licensing issues are covered. Why OSS? You control the rights to make changes to the software at any time You can spend more on training and maintenance Engage and help develop the local IT industry, for long term sustainability Benefit from active communities and share development costs with other organizations Why not? Difficult to navigate among all the applications and communities, can end up with a poorly supported product A community might not be able to provide the business relationship you need Staffing Policy Impact on Sustainability In one country, the choice of a particular vendors accounting system required IT personnel whose salaries were above the government pay scale. This required prime minister approval, which took one year. This delay affected the transition of the system to local responsibility. Recommendation: Beneficiary governments should insist that donors with an IV&V or similar review process require the project implementer to undergo the review. Get quotes for different licensing schemes to determine which is most cost-effective. If the software is in use in other areas of government, there may be a site license or a number of seats already purchased that you can use, eliminating the need to purchase additional licenses. 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