Data Remediation and Marking Initiative

1. Introduction

RFP Solutions Inc. was engaged on April 21, 2015 as a Fairness Monitor (FM) to observe all phases of the competitive procurement processes for the Data Remediation and Marking (DRM) Initiative related to the proposed implementation of Automated Identification Technology (AIT) to support the management of Department of National Defence (DND) and Canadian Armed Forces (CAF) assets and supply chain.

The procurement was conducted in two phases. The Industry Engagement Phase was to exchange information with industry. The final phase was a Request for Proposal (RFP) to select a supplier for contract award.

The Industry Engagement process involved three Requests for Information (RFI). All the RFIs were issued by Public Services and Procurement Canada (PSPC) on behalf of the DND/CAF. The first RFI was issued through Solicitation Number W6381-170008/A to seek industry engagement and feedback on the application of Unique Identification (UID) marking and data remediation of UID relevant assets as a critical first step of the project. The second RFI was issued through Solicitation Number W6381-170008/B to solicit industry feedback through a consultative process that could include industry meetings, one-on-one meetings and working group sessions. The third RFI was issued through Solicitation Number W6381-170008/C to solicit industry feedback on the draft Statement of Work (SOW) and as a forum to communicate with suppliers.

The RFP for the Data Remediation and Marking Initiative (DRM) was issued by PSPC on behalf of DND/CAF on buyandsell.gc.ca on March 6, 2020 as Solicitation Number W6381-170008/D with a closing date of June 2, 2020.

RFP Solutions Inc. is an independent third party with respect to this activity.

We hereby submit this Final Report, covering the activities of the FM, commencing with the draft RFI prior to posting on the Government Electronic Tendering System (buyandsell.gc.ca), continuing through the subsequent RFIs and RFP stages, including responses to enquiries from potential bidders, to the bid closing. This report also addresses the evaluation of the two bids received, leading to the identification of the successful Bidder.

The 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 to date.

2. Project requirement

In order to exert sound stewardship of DND/CAF inventory holdings, tangible capital assets, pooled asset inventories and other items in the DND/CAF supply chain, along with addressing data errors and deficiencies in supporting information management systems, DND/CAF plans to embark on implementing AIT which will include the DRM Initiative. This initiative includes the development and application of UID marking and subsequent data remediation. Because a critical mass of items must be marked and registered with UID before business processes can exploit the benefits of machine-readable identification technology, the marking of UID relevant items currently in the possession of DND is a leading activity.

UID is a system of establishing unique item identifiers (UII) by assigning a globally unique, machine-readable character string to a discrete item, which serves to distinguish it from other like and unlike items. The UII is then used as the identifier of that item throughout its life cycle to support asset management, accountability, and auditability.

Currently, DND/CAF uses a blend of identifiers including North Atlantic Treaty Organization (NATO) Stock and Manufacturer Part Numbers. Marking items and capturing the mark data will establish the foundation for a common item identification approach. Although the UID data will be captured and managed in the DND Enterprise Resource Planning (ERP) system in the future, integration with the ERP is beyond the scope of the RFI. What will be in scope in parallel with the UID marking activity is the full remediation of data in the DND/CAF ERP (or other systems of record) that pertain to the items being marked. For this purpose, data consists of identification data, including master data and point in time data (for example, location, condition).

The intended outcome of this initiative for UID relevant items is to increase asset visibility and financial accountability by ensuring accurate and up to date data in DND/CAF’s ERP (and other systems of record as applicable) as well as applying UID marks to those items.

3. Attestation of assurance

The Fairness Monitor hereby provides the following unqualified assurance statement concerning the competitive procurement process for the Data Remediation and Marking Initiative contract.

It is our professional opinion that the Request for Proposal process for the Data Remediation and Marking Initiative contract we observed, was carried out in a fair, open and transparent manner.

4. Methodology

RFP Solutions Inc. was engaged as an FM to observe all phases of the competitive procurement processes for the AIT implementation including the DRM Initiative, 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 RFP documents prior to release, observed the RFP solicitation activities, identified fairness-related matters to the Contracting Authority, and verified that responses and actions were reasonable and appropriate. The following summarizes the specific activities and observations of the FM.

5. Fairness monitor activities and observations

5.1 Development of the initial request for information

RFP Solutions Inc. was engaged in FM activities beginning with the development of the initial RFI under Solicitation Number W6381-170008/A. A review of the drafts and final RFI documentation was conducted. This included:

• Objectives of the RFI
• Administrative and Technical Information
• Subsequent Information Sessions, including one-on-one meetings with interested suppliers

The FM provided assurance as to the neutrality of the requirements, the objectivity of requirements and process; and the clarity of the documentation to support understandability by interested suppliers.

Observations

In reviewing the draft RFI documentation, no fairness issues were identified by the FM.

5.2 Initial request for information posting

The RFI was issued to seek industry engagement and feedback on the application of UID marking and data remediation of UID relevant assets as a critical first step of the project. The RFI (Solicitation Number W6381-170008/A) was issued to potential suppliers via buyandsell.gc.ca on June 9, 2016 with the final closing date on July 29, 2016 at 2:00 pm Eastern Daylight Time.

A total of two amendments to the terms and conditions of the solicitation were issued via buyandsell.gc.ca; each was reviewed by the FM prior to release.

The FM also attended, in person, one-on-one meetings with eight interested suppliers. Three meetings were held on June 28, 2016, three meetings occurred on June 29, 2016 and two meetings were held on July 22, 2016.

Observations

In reviewing the responses to questions and amendments to the solicitation and observing the one-on-one meetings, the FM did not observe any fairness issues.

5.3 Initial request for information close

Five responses were received and handled in accordance with deadline and instructions stated in the RFI.

Observations

In reviewing the receipt and handling of the initial RFI responses, the FM did not observe any fairness issues.

5.4 Second request for information posting

The second RFI was issued to be able to engage industry in a consultative process involving industry meetings, one-on-one meetings with suppliers and working group meetings as required in the development of the request for proposal. The RFI (Solicitation Number W6381-170008/B) was issued to potential suppliers via buyandsell.gc.ca on February 18, 2019 with the final closing date on March 25, 2019 at 2:00 pm Eastern Daylight Time.

One amendment to extend the closing date of the solicitation was issued via buyandsell.gc.ca; it was reviewed by the FM prior to release.

In-person consultative sessions with industry consisted of teleconference, one-on-one meetings with five interested suppliers; the FM observed the five meetings. One meeting was held on each of April 5, April 8 and April 10, 2019; two meetings were held on April 11, 2019.

Observations

In reviewing the responses to questions and amendments to the solicitation and observing the one-on-one meetings, the FM did not observe any fairness issues.

5.5 Second request for information close

The second RFI did not request formal written submissions from suppliers and was closed administratively on March 25, 2019.

Observations

In reviewing the closing of the second RFI, the FM did not observe any fairness issues.

5.6 Third request for information posting

The third RFI was issued to solicit industry feedback on the draft SOW and as a forum to communicate with suppliers. The RFI (Solicitation Number W6381-170008/C) was issued to potential suppliers via buyandsell.gc.ca on October 10, 2019 with the final closing date on December 31, 2019 at 2:00 pm Eastern Standard Time.

No amendments to the solicitation were issued.

The FM was also present for five teleconference one-on-one meetings with interested suppliers. The meetings were held on September 25, September 27, October 9, October 16 and October 24, 2019.

Observations

In observing the one-on-one meetings, the FM did not observe any fairness issues.

5.7 Third request for information close

Four responses were received and handled in accordance with deadline and instructions stated in the RFI.

Observations

In reviewing the receipt and handling of the initial RFI responses, the FM did not observe any fairness issues.

5.8 Request for proposal planning/pre-issue stage

Through the industry engagement phase, a review of the draft RFP documentation was conducted. In preparation for the release of the RFP, a final review of the final RFP documentation was conducted. This included a review of the:

• General Information
• Bidder Instructions
• Bid Preparation Instructions
• Evaluation Procedures and Basis of Selection
• Certifications and Additional Information
• Security, Financial and Other Requirements
• Resulting Contract Clauses
• Annexes including:
  • Statement of Work
  • Basis of Payment
  • Security Requirements
  • Security Requirements Checklist
  • DND626, Task Authorization Form
  • Embedded Contractor Letter of Acknowledgement
  • Access to DND Computer Systems
  • Access and Non-disclosure Agreement
  • Non-disclosure Agreement
• Attachments, including:
  • Bidders Question Template
  • Bid Submission Form
  • Electronic Payment Instruments
  • Contract Reference Confirmation Form
  • Technical Evaluation Criteria
  • Pricing Schedule
  • Federal Contractors Program for Employment Equity—Certification

The FM provided assurance as to the neutrality of the requirements, the objectivity of evaluation criteria and process; and the clarity of the documentation to support understandability by bidders in preparing their bids, as well as to mitigate the potential for inconsistency or errors in the eventual application of evaluation criteria by the Evaluation Committee. All feedback provided by the FM was fully addressed by the Contracting Authority.

Observations

In reviewing the RFP documentation, the FM did not observe any fairness issues or risks.

5.9 Request for proposal posting

The RFP was issued via buyandsell.gc.ca on March 6, 2020 as Solicitation Number W6381-170008/D. The RFP final closing date was June 2, 2020 at 2:00 pm Eastern Daylight Time; bids were required to be submitted via the Canada Post Corporation epost Connect service.

A total of 60 questions were received from potential suppliers during the posting period. Responses to these questions, as well as 36 amendments to the terms and conditions of the solicitation were issued in eight Solicitation Amendment documents; all of which were posted to buyandsell.gc.ca. All amendment documents were reviewed by the FM prior to being issued.

Observations

In reviewing the RFP and the subsequent amendments, the FM did not observe any fairness issues.

5.10 Request for proposal close

The FM reviewed the manner in which the proposal responses to the RFP were received and handled with the Contracting Authority.

Two bids were received and handled in accordance with the closing requirements and deadline stated in the RFP.

Observations

In reviewing the receipt and handling of the RFP responses, the FM was satisfied that the closing was undertaken in accordance with the RFP and established procedures and no fairness issues were identified.

5.11 Evaluation instructions

Prior to bid evaluations, the Fairness Monitor again reviewed the evaluation guidelines, including evaluator responsibilities, code of conduct, security, confidentiality and conflict of interest requirements, and evaluation methodology. The evaluation of submissions was subject to a Phased Compliance process for the mandatory submission and technical requirements.

The FM provided assurance as to the impartiality of evaluation methodology.

Observations

In reviewing the evaluation methodology, the FM did not observe any fairness concerns.

5.12 Administrative review

Following RFP closing, a review of mandatory submission and technical requirements was undertaken by the Contracting Authority and Evaluation Committee respectively of the two proposals received. Based on this review, one of the Bidders was identified as being non-compliant with the requirements. The Contracting Authority issued a Compliance Assessment Report (CAR) advising the Bidder of its non-compliance and invited the Bidder to submit additional information to support compliance. Upon receipt of the CAR response and review of information provided, it was determined that the Bidder met the requirements. Subsequently, CARs were issued to both Bidders, informing them that they were compliant with the mandatory submission and technical requirements and eligible to technical evaluation.

The FM reviewed the CARs prior to issuance and the results of the Phased Compliance process to ensure alignment with the requirements in the RFP.

Observation

In reviewing the assessment of Bidders’ compliance with the mandatory submission and technical requirements, the FM did not observe any fairness issues.

5.13 Technical evaluation

The rated technical evaluation was conducted on both bids, as each met all mandatory requirements.

The rated requirements were reviewed individually by each member of the Evaluation Committee. The evaluators subsequently met via teleconference on June 11, 2020 to conduct a consensus evaluation for the Total Technical Score for each bid.

Both bids met the overall minimum rated technical evaluation threshold to be deemed a responsive proposal and proceed to the financial evaluation.

Observation

In observing the consensus evaluation and reviewing the results of the technical evaluation, the FM did not identify any fairness issues.

5.14 Price evaluation, verification and bidder selection

In accordance with the RFP, the pricing envelopes for both bids were opened and the Contracting Authority determined the Total Financial Bid Score for the Bidder. The Fairness Monitor reviewed the Price Proposals and Total Financial Bid Scores with the Contracting Authority.

The selection of the successful Bidder was based on the responsive proposal with the highest Combined Rating – Combined Rating = Total Technical Score (60 points) + Total Financial Bid Score (40 points).

The Contracting Authority verified the Total Score for the responsive Bidder and reviewed the results with the FM.

Observation

In reviewing the results of the price evaluation, verification and bidder selection, the Fairness FM did not observe any fairness concerns.

5.15 Communications and debriefing

This section will be completed as an Addendum to this report following completion of contract award, which is subject to Treasury Board of Canada Approval and confirmation of security and integrity provisions and, as requested, debriefing of Bidders.

6. Reference documents

The following documents related to Solicitation Numbers W6381-170008/A, W6381-170008/B, W6381-170008/C and W6381-170008/D are available on buyandsell.gc.ca and/or through the project office.

7. Addendum to final report

January 6, 2021

Addendum to the Fairness Monitor Final Report dated June 26, 2020 pertaining to the competitive procurement process for the Data Remediation and Marking of Serially Managed Materiel Initiative contract, issued by Public Services and Procurement Canada (PSPC) as a result of Solicitation Number W6381-170008/D.

This Addendum to the Fairness Monitor Final Report covers the period following the conclusion of the evaluation phase up to and including the including the end of the debriefing period. Two bids were received by PSPC in response to the Request for Proposal (RFP). Both bids met the administrative and mandatory requirements of the RFP and the overall minimum rated technical evaluation threshold. Both bids were evaluated for a financial bid score.

Following approval to proceed with contract award on November 16, 2020, the successful bidder was notified via e-mail on November 17, 2020, with the actual contract award occurring on November 27, 2020. Before contract award, the bid was subject to confirmation of security and integrity provisions. The unsuccessful bidder was notified of the RFP results on November 27. 2020. An award notice was posted on buyandsell.gc.ca on November 30, 2020.

As part of its notification process, PSPC notified both bidders that they were entitled to a debrief of their bids. Both bidders requested a debrief. Both bidders were provided with a written debriefing and a debriefing was conducted via Microsoft Teams with the unsuccessful bidder on December 6, 2020. The Fairness Monitor was present to observe the virtual debriefing. The unsuccessful bidder subsequently submitted written follow-up questions. PSPC responded to those questions in writing on December 21, 2020. The Fairness Monitor reviewed all feedback before it was sent to the bidders.

Attestation of Assurance

It is our professional opinion that, the Data Remediation and Marking of Serially Managed Materiel Initiative contract Request for Proposal evaluation and contract award processes we observed, were carried out in a fair, open and transparent manner.