Public Works and Government Services Canada
Operational Integrity Sector
Government of Canada Mainframe Legacy Application Migration Project
Fairness Monitor Final Report
May 16, 2014
Submitted to: Director General, Operational Integrity Sector
Submitted by:
440 Laurier Avenue West ▪ Suite 200 ▪ Ottawa ▪ Ontario ▪ K1R 7X6 ▪ Tel: (613) 782-2484 ▪ Fax: (613) 591-9428
Mainframe Legacy Application Migration Project
Final Report
Table of Contents
1.
Introduction .......................................................................................................................................... 1
2.
Project Requirement ............................................................................................................................. 2
3.
Attestation of Assurance....................................................................................................................... 3
4.
Scope and Objectives of the Fairness Monitor Assignment ................................................................. 4
5.
Methodology......................................................................................................................................... 5
6.
Reference Documents........................................................................................................................... 6
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Government of Canada Mainframe Legacy Application Migration Project
Fairness Monitor Final Report
1. Introduction
Hallux Consulting Inc. was engaged as a Fairness Monitor (FM) to observe the competitive procurement
process for the Government of Canada Mainframe Legacy Application Migration Project (MLAMP),
issued by Public Works and Government Services Canada on behalf of Human Resources and Skills
Development Canada (HRDSC) as a result of Solicitation Number G7638-130001/C. Hallux Consulting
Inc. is an independent third party with respect to this activity.
We reviewed all of the information provided and observed all relevant activities.
A three phase approach was used for this procurement1. Bidders needed to demonstrate that they
could meet certain mandatory criteria as part of Phase One to proceed to Phase Two of the
procurement. During Phase Two, bidders developed a detailed solution to the requirements which was
evaluated using both mandatory and rated criteria. Both bidders who moved on to Phase Two also
participated in Phase Three of the procurement, which entailed an evaluation of their proposed solution
against mandatory and rated criteria using a Measured Use Case (MUC).
We hereby submit the Final Report, covering the activities of the Fairness Monitor, commencing with
the review of the draft Request for Proposal (RFP), continuing through Phase One which was utilized to
select qualified bidders for subsequent phases of the procurement, Phase Two and Three during which
bidders developed and submitted detailed solutions to the requirement, and the final consensus
evaluation and selection process.
This report includes our attestation of assurance, a summary of the scope and objectives of our
assignment, the methodologies applied and relevant observations from the activities undertaken.
1
Phase Three was established through an amendment to the RFP.
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2. Project Requirement
The request for proposal was provided to all Solutions-Based Informatics Professional Services (SBIPS)
suppliers under Domain 7 Legacy Support and Transition.2 The procurement is part of the Mainframe
Legacy Application Migration Project in HRSDC and Shared Services Canada (SSC). A code and data
conversion is being undertaken in this phase of the project, and then migrated to a new hardware
platform. SSC is responsible for providing the hardware platform environment under a separate
agreement with HRSDC.
Since 1968, HRSDC has used the Unisys MCP platform (previously Burroughs Corporation) to run mission
critical applications. These applications are coded in Unisys LINC and COBOL; data are in Unisys
CODASYL-style DMSII database and in industry-standard flat file formats using the EBCDIC standard
character set and collating sequence. The current contract with Unisys expires in December 2016 after
which point, an alternate platform is required for the applications, components and data directly
residing on the Unisys mainframe. Through this procurement, HRSDC plans to have the multiple
applications hosted on the Unisys mainframe migrated to the new platform by May 31, 2016.
2
Prior to the involvement of the Fairness Monitor, a Request for Information (RFI) (G7638-130001/A) was
published on buyandsell.gc.ca June 7, 2013, and a draft RFP (G7638-130001/B) was published on buyandsell.gc.ca.
August 1, 2013. Domain 7 (Legacy Support and Transition) refers to the Solutions-Based Informatics Professional
Services (SBIPS) supply arrangement.
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Final Report
Attestation of Assurance
The FM hereby provides the following unqualified assurance statement concerning the Government of
Canada Mainframe Legacy Application Migration Project: It is our professional opinion that the
competitive procurement process we observed was carried out in a fair, open and transparent manner.
Elizabeth Buckingham, CPA, CMA, CIA
FM Specialist
Sylvie Girard
FM Specialist
Marthe Girouard, CPA, CA
FM Specialist
Howard DuBois, CIA
Contractor Representative and FM Team Leader
Date: May 16, 2014
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4. Scope and Objectives of the Fairness Monitor Assignment
The overall objective of the assignment was to provide PWGSC with an impartial opinion on the fairness,
openness and transparency of the activity being monitored.
Our Fairness Monitor Services included the provision of fairness related observations during the period
following the issuance of the RFI and up to the completion of the evaluation of bids from Phase Three of
the procurement.
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5. Methodology
Hallux Consulting Inc. was engaged as a Fairness Monitor to observe the competitive procurement
process for the Mainframe Legacy Application Migration Project, and to attest to the fairness, openness
and transparency of this monitored activity.
In accordance with the terms of our engagement, we familiarized ourselves with the relevant
documents, reviewed the draft RFP, observed Phase One, Phase Two, and Phase Three activities,
identified fairness-related matters to the Contracting and Technical authorities and ensured that
responses and actions were reasonable and appropriate.
Key activities during the three phases of the solicitation included:
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review of a draft RFP and the final RFP sent by email to all SBIPS suppliers under domain 7.
review of all questions submitted by bidders and proposed responses and amendments to the
RFP. During the period December 16, 2013 and April 22, 2014, 272 written questions were
submitted, and 100 amendments were issued, of which 16 were initiated by Canada and the
balance were in response to the questions posed.
review of materials prepared for the orientation of bidders. A Bidder's Conference was held
December 20, 2013 at the start of Phase One to provide an overview of the procurement
process. Orientation sessions were provided February 18, 2014 and February 19, 2014 on the
planned logistics for Phase Two and the operations of the Reading Room. Another orientation
session was held February 25, 2014 to provide information on the requirements associated with
the Measured Use Case (MUC), a component of the final evaluation process. We observed all of
these orientation sessions.
observation of the consensus evaluation meetings at the end of Phase One on February 5, 2014
and February 7, 2014.
review of correspondence to the bidders from Phase One of the solicitation advising them if
they were successful or unsuccessful. The results of the bid evaluation from Phase One were
communicated to the unsuccessful bidder on February 10, 2014 and to the successful bidders on
February 12, 2014. A written debriefing letter was provided to the unsuccessful bidder on
March 4, 2014.
observation of any direct interactions between Canada and the bidders in the Reading Room
during the period February 18, 2014 to March 31, 2014. The Reading Room was a mechanism
through which HRSDC provided access to technical documentation, source code, database
schema, test case materials and other information relevant to the solicitation.
observation of each bidder's demonstration of their MUC on April 24-25, 2014 and April 28-29,
2014.
observation of the final consensus evaluation meetings April 30-May 2, 2014 and May 4-5, 2014.
A total of three bidders responded to Phase One of the solicitation and two bidders responded to Phase
Two and Phase Three of the solicitation.
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6. Reference Documents
The following documents are referenced by number in the attached report. Unless otherwise indicated,
these documents are available through the PWGSC procurement office.
Table Summary
No.
Document
1 Request for Proposal
Additional information
Bid solicitation documents sent by email December
13, 2013 to all SBIPS suppliers under domain 7
2
MLAMP Mainframe Migration Project
Tender Notice
3
Notice of Bidders Conference December 20, Sent by email December 17, 2013 to all SBIPS
2013
suppliers under domain 7
4
Amendment to Notice of Proposed
Procurement
Closing date amendment to February 24, 2014
released on Buyandsell.gc.ca on December 19, 20133
Presentations made by Canada at the
December 20, 2013 Bidders Conference
Copy of presentation used at Bidders Conference
and the questions asked and answers provided
sent out by email December 20, 2013 to all SBIPS
suppliers under domain 7
5
Released on buyandsell.gc.ca on December 16, 2013
6 Amendment No. 001
Sent by email to all SBIPS suppliers under domain 7,
December 16, 2013
7 Amendment No. 002
Sent by email to all SBIPS suppliers under domain 7,
December 17, 2013
8 Amendment No. 003
Sent by email to all SBIPS suppliers under domain 7,
December 19, 2013
9 Amendment No. 004
Sent by email to all SBIPS suppliers under domain 7,
December 24, 2013
10 Amendment No. 005
Sent by email to all SBIPS suppliers under domain 7,
January 6, 2014
3
Bidders were subsequently advised in Amendment 38 issued January 24, 2014 that the close date for Phase 2 had
been extended to April 2, 2014. As of January 31, 2014, a revised Notice of Proposed Procurement had not yet
been posted on buyandsell.gc.ca.
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Additional information
11 Amendment No. 006
Sent by email to all SBIPS suppliers under domain 7,
January 7, 2014
12 Amendment No. 007
Sent by email to all SBIPS suppliers under domain 7,
January 7, 2014
13 Amendment No. 008
Sent by email to all SBIPS suppliers under domain 7,
January 7, 2014
14 Amendment No. 009
Sent by email to all SBIPS suppliers under domain 7,
January 7, 2014
15 Amendment No. 010
Sent by email to all SBIPS suppliers under domain 7,
January 8, 2014
16 Amendment No. 011
Sent by email to all SBIPS suppliers under domain 7,
January 8, 2014
17 Amendment No. 012
Sent by email to all SBIPS suppliers under domain 7,
January 8, 2014
18 Amendment No. 013
Sent by email to all SBIPS suppliers under domain 7,
January 9, 2014
19 Amendment No. 014
Sent by email to all SBIPS suppliers under domain 7,
January 9, 2014
20 Amendment No. 015
Sent by email to all SBIPS suppliers under domain 7,
January 9, 2014
21 Amendment No. 016
Sent by email to all SBIPS suppliers under domain 7,
January 10, 2014
22 Amendment No. 017
Sent by email to all SBIPS suppliers under domain 7,
January 10, 2014
23 Amendment No. 018
Sent by email to all SBIPS suppliers under domain 7,
January 10, 2014
24 Amendment No. 019
Sent by email to all SBIPS suppliers under domain 7,
January 10, 2014
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25 Amendment No. 020
Sent by email to all SBIPS suppliers under domain 7,
January 13, 2014
26 Amendment No. 021
Sent by email to all SBIPS suppliers under domain 7,
January 13, 2014
27 Amendment No. 022
Sent by email to all SBIPS suppliers under domain 7,
January 13, 2014
28 Amendment No. 023
Sent by email to all SBIPS suppliers under domain 7,
January 14, 2014
29 Amendment No. 024
Sent by email to all SBIPS suppliers under domain 7,
January 14, 2014
30 Amendment No. 025
Sent by email to all SBIPS suppliers under domain 7,
January 15, 2014
31 Amendment No. 026
Sent by email to all SBIPS suppliers under domain 7,
January 15, 2014
32 Amendment No. 027
Sent by email to all SBIPS suppliers under domain 7,
January 15, 2014
33 Amendment No. 028
Sent by email to all SBIPS suppliers under domain 7,
January 15, 2014
34 Amendment No. 029
Sent by email to all SBIPS suppliers under domain 7,
January 15, 2014
35 Amendment No. 030
Sent by email to all SBIPS suppliers under domain 7,
January 16, 2014
36 Amendment No. 031
Sent by email to all SBIPS suppliers under domain 7,
January 17, 2014
37 Amendment No. 032
Sent by email to all SBIPS suppliers under domain 7,
January 20, 2014
38 Amendment No. 033
Sent by email to all SBIPS suppliers under domain 7,
January 21, 2014
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39 Amendment No. 034
Sent by email to all SBIPS suppliers under domain 7,
January 21, 2014
40 Amendment No. 035
Sent by email to all SBIPS suppliers under domain 7,
January 21, 2014
41 Amendment No. 036
Sent by email to all SBIPS suppliers under domain 7,
January 22, 2014
42 Amendment No. 037
Sent by email to all SBIPS suppliers under domain 7,
January 23, 2014
43 Amendment No. 038
Sent by email to all SBIPS suppliers under domain 7,
January 24, 2014
44 Technical Evaluation Report (Phase One)
Dated February 7, 2014
Communication of Phase I results to unsuccessful
Communication of Phase One Results to bidder by letter attached to an email February 10,
45
Bidders
2014 and to the successful bidders by letter
attached to an email February 12, 2014
46 Debriefing Letter to Unsuccessful Bidder
Debriefing provided to unsuccessful bidder in a
letter dated March 4, 2014
Phase Two and Three
Presentation made by Canada at the
Bidders' Orientation Session February 17,
47 2014 and February 19, 2014
Copy of agenda and presentation used at the
orientation session for the two remaining bidders
February 17, 2014 and February 19, 2014 on the
contractual requirements for Phase Two and the
logistics associated with the Reading Room.
Presentation made by Canada to bidders
48 February 25, 2014 on the Measured Use
Case
Copy of presentation used at the orientation session
for the remaining two bidders February 25, 2014 on
the Measured Use Case
49
Amendment to Notice of Proposed
Procurement
Closing date amendment to April 14, 2014 released on
Buyandsell.gc.ca on April 1, 2014
50
Amendment to Notice of Proposed
Procurement
Closing date amendment to April 22, 2014 released on
Buyandsell.gc.ca on April 16, 2014
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51 Amendment No. 039
Sent by email to the three firms that submitted bids in
Phase I of the procurement, February 6, 2014
52 Amendment No. 040
Sent by email to the two bidders that qualified to
proceed to Phase Two, February 14, 2014
53 Amendment No. 041
Sent by email to the two bidders that qualified to
proceed to Phase Two, February 14, 2014
54 Amendment No. 042
Sent by email to the two bidders that qualified to
proceed to Phase Two, February 25, 2014
55 Amendment No. 043
Sent by email to the two bidders that qualified to
proceed to Phase Two, February 28, 2014
56 Amendment No. 044
Sent by email to the two bidders that qualified to
proceed to Phase Two, February 28, 2014
57 Amendment No. 045
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 5, 2014
58 Amendment No. 046
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 6, 2014
59 Amendment No. 047
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 6, 2014
60 Amendment No. 048
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 7, 2014
61 Amendment No. 049
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 10, 2014
62 Amendment No. 050
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 11, 2014
63 Amendment No. 051
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 11, 2014
64 Amendment No. 052
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 12, 2014
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65 Amendment No. 053
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 13, 2014
66 Amendment No. 054
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 17, 2014
67 Amendment No. 055
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 19, 2014
68 Amendment No. 056
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 19, 2014
69 Amendment No. 057
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 20, 2014
70 Amendment No. 058
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 21, 2014
71 Amendment No. 059
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 24, 2014
72 Amendment No. 060
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 24, 2014
73 Amendment No. 061
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 25, 2014
74 Amendment No. 062
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 25, 2014
75 Amendment No. 063
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 25, 2014
76 Amendment No. 064
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 26, 2014
77 Amendment No. 065
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 26, 2014
78 Amendment No. 066
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 26, 2014
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79 Amendment No. 067
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 26, 2014
80 Amendment No. 068
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 27, 2014
81 Amendment No. 069
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 28, 2014
82 Amendment No. 070
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 28, 2014
83 Amendment No. 071
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 28, 2014
84 Amendment No. 072
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 31, 2014
85 Amendment No. 073
Sent by email to the two bidders that qualified to
proceed to Phase Two, March 31, 2014
86 Amendment No. 074
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 1, 2014
87 Amendment No. 075
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 1, 2014
88 Amendment No. 076
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 1, 2014
89 Amendment No. 077
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 2, 2014
90 Amendment No. 078
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 3, 2014
91 Amendment No. 079
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 3, 2014
92 Amendment No. 080
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 4, 2014
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93 Amendment No. 081
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 4, 2014
94 Amendment No. 082
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 7, 2014
95 Amendment No. 083
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 7, 2014
96 Amendment No. 084
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 8, 2014
97 Amendment No. 085
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 8, 2014
98 Amendment No. 086
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 10, 2014
99 Amendment No. 087
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 10, 2014
100 Amendment No. 088
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 10, 2014
101 Amendment No. 089
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 11, 2014
102 Amendment No. 090
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 11, 2014
103 Amendment No. 091
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 11, 2014
104 Amendment No. 092
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 11, 2014
105 Amendment No. 093
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 11, 2014
106 Amendment No. 094
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 14, 2014
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107 Amendment No. 095
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 14, 2014. The
amendment was further amended April 15, 2014 and
sent by email to the two bidders who qualified to
proceed to Phase Two.
108 Amendment No. 096
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 14, 2014
109 Amendment No. 097
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 15, 2014
110 Amendment No. 098
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 16, 2014
111 Amendment No. 099
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 17, 2014
112 Amendment No. 100
Sent by email to the two bidders that qualified to
proceed to Phase Two, April 22, 2014
113 Guidelines for Evaluation Team Members
Guidelines for the bid evaluation team members
outlining the process to follow while evaluating bids
sent by email by the contracting officer on April 15,
2014
114
Technical Evaluation Report (Phase Two
and Three)
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Addendum to the Final Report
July 4, 2014
Addendum to Fairness Monitor Final Report dated May 16, 2014 on the competitive procurement
process for the Government of Canada Mainframe Legacy Application Migration Project (MLAMP).
This Addendum to the Fairness Monitor Final Report covers the period following the conclusion of the
evaluation phase.
FM Activities Related to Contract Award and Debriefings
The successful bidder was selected and the contract awarded on June 17, 2014. A letter was sent to the
unsuccessful bidder on June 13, 2014 advising of the result. Pursuant to a request from the unsuccessful
bidder, additional feedback on the bid for Phase Two and Three was provided verbally on June 27, 2014.
FM Attestation of Assurance
The FM hereby provides the following unqualified assurance statement concerning the Government of
Canada Mainframe Legacy Application Migration Project: It is our professional opinion that the
competitive procurement process we observed was carried out in a fair, open and transparent manner.
Elizabeth Buckingham, CPA, CMA, CIA
Sylvie Girard
Marthe Girouard, CPA, CA
FM Specialist
FM Specialist
FM Specialist
Howard DuBois, CIA
Contractor Representative and FM Team Leader.