Rehabilitation Services and Vocational Assistance Program

Introduction

KPMG was engaged on October 26, 2018 as a fairness monitor (FM) to observe all stages of the competitive procurement process associated with the Rehabilitation Services and Vocational Assistance Program. Public Works and Government Services Canada (PWGSC) on behalf of Veterans Affairs Canada (VAC) is seeking to procure the services of a contractor to assist in the delivery of the Rehabilitation and Vocational Assistance Program.

KPMG is an independent third party with respect to this activity.

The procurement process involved a letter of interest (LOI) 51019-184018/A, as well as the draft request for proposal (RFP) 51019-184018/B, which was observed from a fairness perspective by the FM and the subject of a request for information (RFI) report submitted to PWGSC dated November 30, 2020.

The RFP 51019-184018/C, issued on October 30, 2020, was also observed from a fairness perspective by the FM. Bidders were invited to submit bids in which they were asked to demonstrate corporate experience and resource experience as well as bidder approach and methodology. In addition, bidders were asked to provide certifications and pricing and terms offered.

We hereby submit the final report, covering the activities of the FM commencing with the LOI issued on June 6, 2019 on buyandsell.gc.ca continuing through the RFP phase and the evaluation of proposals leading to the identification of the successful proponent.

This report includes:

• our attestation of assurance
• a summary of the scope and objectives of our assignment
• the methodologies applied
• the relevant observations from the activities undertaken

Project requirement

VAC is mandated to deliver professional rehabilitation services to eligible veterans, spouses or common-law partners and survivors. On behalf of VAC, PWGSC has a requirement for a contractor to assist in the delivery of an innovative, nationally consistent, quality assured rehabilitation and vocational assistance program to eligible veterans, spouses or common-law partners and survivors that is standardized and client focused. VAC requires intake, assessment, and coordination of multi-disciplinary rehabilitation and vocational assistance service delivery to be provided for program participants across all 10 provinces and 3 territories, as well as out of country, with support by a network of service providers.

The contracted services include the following activities:

• conducting professional, standardized comprehensive rehabilitation and vocational assistance assessments based on rehabilitation best practices
• developing leading edge, dynamic, client-centered rehabilitation and vocational assistance plans
• providing direct rehabilitation and vocational assistance service delivery leveraging a national network of professional rehabilitation focused inter-disciplinary teams
• communicating and collaborating throughout the participant’s rehabilitation program with VAC decision makers, monitoring progress, evaluating and adjusting the rehabilitation plan as required, measuring participant outcomes and recommending plan closure
• administering, processing and paying rehabilitation program participant claims, travel expenses, vocational assistance related expenses and training costs
• conducting rigorous performance measurement and quality management

The rehabilitation program for each VAC participant is tailored to the individual’s needs and identified goals, as determined through an assessment process, and in consultation with the participant and VAC program personnel. Based on this, a rehabilitation services plan is developed and provided to each participant. It may include any combination of 1 or more medical, psycho-social or vocational rehabilitation interventions. The focus of the rehabilitation program is to address the rehabilitation needs related to eligible health conditions in the following 6 key functional areas:

• mental and physical functioning
• social adjustment
• financial security
• employment and personal productivity
• family relationships
• community participation

The work is to be performed for a total of 6 years which includes: a 1 year and 6-month implementation period, a 4-year full-service period, and a 6-month contract phase out period. There will also be an option to extend the period of the contract by up to 3 additional, 2-year periods prior to the contract phase out period.

Attestation of assurance

The FM hereby provides the following unqualified assurance statement concerning the request for proposal process for rehabilitation and vocational assistance services for veterans. It is our professional opinion that the procurement process we observed or monitored, was carried out in a fair, open and transparent manner.

Methodology

KPMG was engaged as the FM to observe the RFP process for rehabilitation and vocational assistance services for veterans, issued by PWGSC on behalf of VAC, 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, observed bid solicitation activities, which included the RFP, amendments and questions from and answers provided to bidders, identifying fairness-related matters to the contracting authorities, and ensured that responses and actions were reasonable and appropriate.

The next section of this report identifies the specific activities and observations of the FM in respect to those activities.

Fairness monitoring activities and observations

In this section

• Request for information review
• Letter of interest posting
• Industry engagement and communications
• Draft request for proposal review
• Draft request for proposal posting and close
• Request for proposal review
• Request for proposal posting
• Evaluation worksheets
• Request for proposal close
• Evaluation instructions
• Compliance review
• Technical evaluation
• Price evaluation and proponent selection

Request for information review

KPMG was engaged to begin FM activities commencing with the development of the RFI. Prior to the publication of the RFI on June 6, 2019 on buyandsell.gc.ca, the FM reviewed the RFI.

Observations

In reviewing the draft RFI documentation, fairness considerations were identified by the FM and discussed with the contracting authority. All fairness considerations were addressed in the RFI prior to issuance and none resulted in fairness deficiencies.

Letter of interest posting

The LOI was issued via buyandsell.gc.ca on June 6, 2019. The closing date was March 23, 2020. The LOI was accessible to all potential participants, without unjustified restrictions as to who may participate.

Observations

Fairness considerations identified regarding the publication of the LOI were discussed with the contracting authority. All fairness considerations were addressed, and none resulted in fairness deficiencies.

Industry engagement and communications

Following the release of the LOI, an amendment was released on June 28, 2020. This amendment provided the industry day notice, which was reviewed by the FM.

Prior to the 1-on-1 sessions, the FM reviewed the questions that were sent to interested suppliers and clarification questions asked by suppliers and the responses provided.

The FM attended the industry day on July 16, 2019 and monitored the 1-on-1 sessions with individual suppliers on July 16 and July 17, 2019. These sessions were held at the Ottawa Conference and Event Centre, 200 Coventry Road, in Ottawa. 7 suppliers attended the industry day and 1-on-1 consultation sessions.

The FM reviewed amendments that were issued after the industry day and 1-on-1 sessions, which captured questions and responses recorded during the sessions.

The FM reviewed all the amendments prior to issuance which included clarification questions and responses related to the LOI, as well as amendments to extend LOI closing date.

The LOI closed on March 23, 2020, and no further feedback from suppliers was accepted.

Observations

Feedback was received and handled in accordance with the deadline and requirements stated in the LOI and amendments. Responses to questions and comments were prepared by PWGSC and VAC, reviewed by the FM, and posted on buyandsell.gc.ca.

Fairness considerations identified regarding the industry engagement and communications with suppliers through the issuance of amendments were discussed with the contracting authority. All fairness considerations were addressed, and none resulted in fairness deficiencies.

Draft request for proposal review

The FM reviewed the draft RFP prior to its publication on June 30, 2020 on buyandsell.gc.ca.

Observations

In reviewing the draft RFP documentation, fairness considerations were identified by the FM and discussed with the contracting authority. All fairness considerations were addressed in the draft RFP prior to issuance and none resulted in fairness deficiencies.

Draft request for proposal posting and close

The draft RFP was issued via buyandsell.gc.ca on June 30, 2020 and closed on October 21, 2020. The draft RFP was accessible to all potential participants, without unjustified restrictions as to who may participate.

Throughout the period that the draft RFP was posted, interested suppliers were able to submit questions and comments on the document. Questions and responses were issued to all potential participants through amendments.

Observations

Communication with suppliers was conducted in accordance with the requirements stated in the notice of posting of the draft RFP. Responses to questions and comments were prepared by PWGSC and VAC, reviewed by the FM, and posted on buyandsell.gc.ca. Fairness considerations identified regarding the draft RFP and communications were discussed with the contracting authority. All fairness considerations were addressed, and none resulted in fairness deficiencies.

Request for proposal review

The FM reviewed the RFP prior to the publication of the RFP on October 30, 2020 on buyandsell.gc.ca.

Observations

In reviewing the draft RFP documentation, fairness considerations were identified by the FM and discussed with the contracting authority. All fairness considerations identified by the FM were addressed in the RFP prior to issuance. No fairness deficiencies were observed.

Request for proposal posting

The RFP (dated October 29, 2020) was issued via buyandsell.gc.ca on October 30, 2020. The original closing date was December 9, 2020 but subsequent amendments extended the deadline to December 18, 2020. The RFP was accessible to all potential bidders, without unjustified restrictions as to who may participate.

11 amendments were released providing responses to questions received during the tendering period.

Each amendment was reviewed by the FM.

Observations

Fairness considerations identified by the FM with respect to the amendments were discussed with the contracting authority. All fairness considerations identified by the FM were addressed prior to issuance of amendments. No fairness deficiencies were observed.

Evaluation worksheets

The FM reviewed the evaluation worksheets prior to the start of the bid evaluation process. The evaluation worksheets consisted of a mandatory evaluation criteria worksheet, and a point rated evaluation criteria worksheet.

Observations

Fairness considerations identified by the FM with respect to the evaluation worksheets were discussed with the contracting authority. All fairness considerations identified by the FM were addressed prior to finalization of the documents. No fairness deficiencies were observed.

Request for proposal close

At close of the RFP on December 18, 2020, 4 bids were received. The FM discussed the manner in which the bid responses to the RFP were received and handled with the contracting authority.

Observations

4 bids were received and handled in accordance with the deadline and requirements stated in the RFP. No fairness deficiencies were observed.

Evaluation instructions

Prior to proposal evaluations, the FM reviewed the evaluation guidelines, including evaluator responsibilities, confidentiality and conflict of interest requirements, and evaluation methodology.

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

Observations

The FM reviewed the evaluation methodology and related requirements. No fairness deficiencies were observed.

Compliance review

Following the RFP closing, the review of the compliance requirements was undertaken by the contracting authority for the proposals received. The bids were reviewed to confirm that the requested certifications and requested information were provided. The financial portion of the bids were compliant, and the technical portion of the bids did not contain any financial information.

Observations

The FM oversaw and reviewed the results of the compliance review. No fairness deficiencies were observed.

Technical evaluation

The technical evaluation of the bid was held virtually.

A technical evaluation kick-off meeting was held on January 4, 2021. During the kick-off meeting, each technical bid evaluator was provided a single copy of the technical bid along with the bid evaluation assessment sheet in order to conduct individual reviews. Evaluation guidelines and fairness, openness and transparency principles were explained to the evaluators by the contracting authority.

The evaluation process began with a review of the mandatory criteria. 2 proposals failed to meet some of the mandatory criteria. Compliance assessment reports (CAR) were issued to both bidders. Their responses failed to meet the mandatory criteria stated in the RFP. Therefore, both bidders were deemed to be ineligible to proceed to the evaluation of the point-rated criteria. This assessment was confirmed by all evaluation team members. The remaining 2 proposals were deemed to be responsive to the mandatory criteria stated in the RFP, thus were eligible to proceed to the evaluation of the point-rated criteria.

Following the individual technical evaluations, the contracting authority held virtual consensus evaluation meetings from February 5 to 15, 2021. Evaluators discussed their individual assessments to arrive at a consensus on the bidders’ technical evaluation.

The FM was present and monitored the entire technical evaluation consensus process. The FM provided assurance that it was undertaken in a consistent fashion and that the results reflect the consensus of all evaluation team members.

Observations

The FM oversaw and reviewed the results of the technical evaluation. No fairness deficiencies were observed.

Price evaluation and proponent selection

The Contracting Authority verified the pricing details on the forms provided by the proponents. An evaluation summary sheet containing the financial bid details was prepared by the contracting authority and reviewed by the FM.

Observations

The selection of the successful proponent was consistent with the provisions and methodology outlined in the RFP. No fairness deficiencies were observed.

Reference documents

Documents related to solicitation 51019-184018/A are available on Buyandsell.gc.ca or through the project office.

Documents related to solicitation 51019-184018/B are available on Buyandsell.gc.ca or through the project office.

Documents related to solicitation 51019-184018/C are available on Buyandsell.gc.ca or through the project office.

Addendum to final report

September 16, 2021

Addendum to the FM final report dated April 22, 2021 pertaining to the competitive procurement process associated with the Rehabilitation Services and Vocational Assistance Program, issued by PWGSC on behalf of VAC, as a result of solicitation 51019-184018/C.

This addendum to the FM final report covers the period following the conclusion of the evaluation phase.

Activities related to contract award and debriefings

4 proposals were received by PWGSC in response to this request for proposals. The successful bidder was notified of contract award on June 30, 2021. The FM reviewed the contract award letter prior to it being sent to the successful bidder. No fairness deficiencies were observed.

There were 4 requests for debriefings. The FM reviewed all correspondance with bidders in relation to the debriefings, and also attended the debriefing sessions with bidders. No fairness deficiencies were observed.

Attestation of Assurance

The FM hereby provides the following unqualified assurance statement concerning the Rehabilitation Services and Vocational Assistance Program procurement process.

It is our professional opinion that the procurement process we observed or monitored was carried out in a fair, open and transparent manner.