Awarded to CGI IT UK Limited

Start date: Wednesday 27 March 2019
Value: £1,769,195
Company size: large
Welsh Government

Development of Electronic Registers for Common Land and Town or Village Greens in Wales

7 Incomplete applications

5 SME, 2 large

8 Completed applications

2 SME, 6 large

Important dates

Monday 19 November 2018
Deadline for asking questions
Monday 26 November 2018 at 11:59pm GMT
Closing date for applications
Monday 3 December 2018 at 11:59pm GMT


Summary of the work
Supplement existing Discovery work, followed by Alpha, Beta (Private & Public) to build and introduce electronic registers for common land and town and village greens in Wales. Define specification for and manage data migration of current registers and maps (including dominant tenement maps), including support for Welsh Government public consultation.
Latest start date
Friday 1 March 2019
Expected contract length
30 months
Organisation the work is for
Welsh Government
Budget range
£2million - £3million

About the work

Why the work is being done
Welsh Government is committed to protecting common land in Wales both now and for future generations. The current registers for common land in Wales date back to the Commons Registration Act 1965. They are predominantly paper based consisting of textual records and associated maps. The Commons Act 2006 allows the whole or any part of a register to be kept in electronic form. The aim of this project is to develop and introduce an electronic register for common land and town or village greens in Wales. The proposed schedule is for the electronic registers to be launched in Spring 2022.
Problem to be solved
*access to the registers is limited and requires a personal visit by appointment to the Common Registration Authority office based within each Local Authority.

*handling old paper records and maps and dealing with customers in person is time-consuming for Common Registration Officers.

*inconsistency in how the registers are maintained.

*The declining physical state of the registers where parts may be difficult to read or interpret.

*official copies of registers on paper must be scanned or information entered manually into other systems.
Who the users are and what they need to do
As a Common Registration Officer I need to be able to; easily search the register, have information available to undertake apportionment of rights and make amendments, provide support when enquiries are made so that I can update and maintain the register and provide exemplar customer service.

As a Commoner I need to access the register to check what rights I have or exist over land so I can register new rights, apply to amend existing rights, have accurate information to support farm payment claims, apply for consents for carrying out works on common land.
Early market engagement
Any work that’s already been done
A Discovery Phase project has been completed which focussed on user research to identify business and user requirements for electronic registers and associated data. Dating back to 2005, a number of studies have considered the development of electronic registers. Copies of all documents are available on request.

Consideration has been given to using Lle, the Welsh Government GEO Portal for the Web Portal element of the Electronic Registers. Work is currently on-going to develop Lle and we would expect the supplier to consider this option as part of the further Discovery work required on the web portal element.
Existing team
The existing team consisting of the senior responsible officer and project manager is based within Agriculture and Sustainable Development Division. The supplier will also be required to work alongside the Geography and Technology team who are responsible for Lle, the Geo-Portal for Wales. The supplier will also need to work closely with the Common Land Registration Authorities based within the 22 Local Authorities across Wales as well as other stakeholders within and outside Welsh Government who have an interest in this project.
Current phase

Work setup

Address where the work will take place
We would expect the supplier to be able to work at Welsh Government offices when required.
Address: Welsh Government, Cathays Park, Cardiff, CF10 3NQ

The supplier should also be able to travel to other locations across Wales in order to meet with the Common Land Registration Authorities and other stakeholders as required.
Working arrangements
The supplier would be expected to work 5 days a week for the duration of the contract. Suppliers will be expected to provide milestone information as part of the "estimated timeframes" section of their full proposal submissions.
Security clearance
Security Check (SC Clearance)

Additional information

Additional terms and conditions
The supplier would be expected to comply with the relevant Welsh Language Standards which apply to any activity or service provided by or on behalf of the Welsh Ministers.

Skills and experience

Buyers will use the essential and nice-to-have skills and experience to help them evaluate suppliers’ technical competence.

Essential skills and experience
  • Proven experience of delivering projects using agile project management methodology, meeting all requirements within specified deadlines.
  • Experience of developing and delivering approaches for discovery/alpha/beta phases through to "live" which run concurrently across project work streams.
  • Proven ability to draw together a sustainable multidisciplinary team to deliver project requirements.
  • Proven ability to identify and manage risks and issues, developing plans to mitigate against risk and in agreement with SRO, able to adapt quickly to changes where necessary.
  • Proven experience of developing GIS software for spatial data capture including geo-referencing and digitising of scanned maps.
  • Proven experience of designing and building optimised spatial databases in MS SQL Server.
  • Proven experience of developing web based spatial applications using .Net MVC
  • Experience of developing applications on Microsoft Azure
  • Experience of developing bilingual systems.
  • Experience of engaging with multiple stakeholders with varying knowledge to inform system development and future ways of working.
  • Proven experience of working with public sector organisations, in particular local authorities to lead and coach through a digital transformation process.
  • Proven ability to manage and deliver large scale data migration (from a mixture of paper and electronic based records to one consistent electronic record).
  • Experience of high volume, high resolution scanning of physical map data.
  • Demonstrate a successful approach to completion of required IT Security Health Checks.
  • An understanding of the application of GDPR legislation.
  • Proven experience of developing digital services which are compliant with Government Digital Service Standards.
  • Holds current Cyber Essentials accreditation and able to provide staff to SC Clearance level.
  • Experience of delivering to accessibility standards (WCAG 2.1AA)
  • Available for contract start March 2019.
  • Experience of JavaScript programming (such as Angular) and working with rich web-based GIS websites and web applications, with experience of GIS APIs such as Open Layers, Google Maps, Bing Maps.
Nice-to-have skills and experience
  • An understanding of the existing legislation and requirements for the registration and management of common land in Wales.
  • An understanding of the Welsh Language Standards which set out Welsh Government's responsibilities in providing excellent bilingual services.
  • Experience of working in conjunction with policy teams to inform development of legislation in parallel with system development.
  • Experience with open-source software such as GQIS, PostGIS and Geoserver.
  • Understanding and experience of working to a Global Experience Language.

How suppliers will be evaluated

How many suppliers to evaluate
Proposal criteria
  • How the proposal meets requirements including the policy goal and user needs.
  • How the approach/methodology for delivering the proposal meets requirements, including management of work streams and quality of outputs.
  • How the technical solution and proposed management of the requirement to scan all register pages and maps meets requirements.
  • How the technical solution and proposed management for the conversion of the textual registers using the scanned copies meets requirements.
  • How the technical solution for digitisation of the common land boundaries (using the scanned copies of maps) meets requirements.
  • Assessment of the proposed process for quality control and correction required for the data migration phase.
  • Assessment of the proposed process required to support the public consultation on the copied records.
  • How the technical solution to design, build and deliver the foundation electronic register meets requirements.
  • How the technical solution and proposed approach to develop the web portal, including consideration of using Lle - the GEO Spatial portal for Wales meets requirements.
  • How the team structure, including roles/ responsibilities and ways of working can deliver requirements. This must include evidence of team skills and experience.
  • Assessment of estimated timeframes (broken down into phases) to deliver a live system by Spring 2022.
  • Assessment of how the proposal delivers additional value for money.
  • Assessment of identified risks and dependencies with evidence of how these will be managed and mitigated against.
Cultural fit criteria
  • Ability to work collaboratively with the SRO and project manager, sharing knowledge and experience to ensure transparent decision making.
  • Ability to work with Government and Local Authorities, including stakeholders with low technical expertise.
  • Ability to take responsibility for work, resolving problems and being able to adapt quickly to any agreed changes.
Payment approach
Capped time and materials
Assessment methods
  • Written proposal
  • Case study
  • Presentation
Evaluation weighting

Technical competence


Cultural fit




Questions asked by suppliers

1. What is the volume of maps?
An assessment of the volume of maps and number of register pages was undertaken as part of the Discovery Phase. It is difficult to determine the exact number of register pages but this is estimated to be between 20- 25,000 pages. The registers also include approximately 12,000 maps (including the dominant tenement maps)
2. Are we able to share the Discovery Phase report
We will endeavour to share the key findings from the Discovery Phase. However we would stress the findings within the Discovery Phase are indicative and through this procurement process we will be looking to potential suppliers to set out their own proposals, costing's etc. Also to note the recommended approach for data migration within the Discovery Phase report excludes the dominant tenement maps. We have subsequently made the decision to include these. In addition, the potential to use Lle the Geo-Spatial portal for Wales is now back in scope for the web-portal element of the system.
3. Will the maps be fully geo-referenced
Yes, we expect the maps to be scanned and fully geo-referenced.
4. Will the maps scanned maps be kept as an archive record?
5. Was the Discovery Phase undertaken by an external supplier and can we confirm who this is?
Yes - the Discovery Phase was completed by an external company, Informed Solutions.
6. What are the Alpha Phases?
The indicative plan set out in the Discovery Phase report is to run Alpha Phases (3 months each) for both the Foundation Electronic Register and Web Portal work streams. The Alpha Phase for the Foundation Electronic Register would run in advance of the Alpha Phase for the development of the web portal.
7. What Content Management System is being considered?
There is potential to build on the existing Lle infrastructure. Welsh Government predominately use Drupal.
8. What consideration has been given to hosting?
The electronic registers will be hosted on the Welsh Government Azure instance.
9. Will all team members require SC Clearance?
Any team members who will require access to Welsh Government systems will require SC Clearance
10. Who is the SRO of the project?
The SRO of the project is Spencer Conlon. The project team are based within the Agriculture and Sustainable Development Davison of Welsh Government.
11. Is there a Ministerial drive to digitise boundaries of older maps
The objective of the project is to re-create electronically the current paper based legal record of common land in Wales. This includes the common land maps and dominant tenement maps. We would expect any old maps to be captured to the same quality as any newer maps which have been created.
12. Did the discovery phase include non-functional polymetrics?
The Discovery Phase did not go into this level of detail.
13. Will you require cost per digitised map?
No - for full proposals, we will be seeking costs per work stream. A template will be provided to those invited to submit full proposals. Tender responses will be evaluated on the total cost of the response. We recognise there will be a need for suppliers to make a certain level of assumptions in calculating costs at this stage.
14. Will it be possible to take the maps and registers away from the Local Authority Offices?
The specific logistics of data migration will need to be considered as part of the supplementary Discovery Phase at the start of the contract. However, we anticipate for security and practical reasons it will not be possible to take the maps and registers away from Local Authority Offices as they rely on having access to the registers in order to carry out their day to day work.
15. Additional Information on Engagement With Local Authorities
For information, Local Authorities have been actively engaged in the project, through the Discovery Phase. Workshops are currently being held with the Local Authorities to ensure this engagement is continued, ensuring they remain up to date on the project and prepared for a supplier commencing work in March 2019.
16. How long do you envisage Alpha phase taking?
The Discovery phase estimated Alpha would take approximately 3 months.
17. Will Local Authorities geo-reference maps?
Geo-referencing will be undertaken as part of the data capture and will not be undertaken by Local Authorities.
18. Once live will Local Authorities be able to make changes to the maps?
Yes, Local Authorities will responsible for maintaining the maps.
19. Is the Lle front end under development.
The Welsh Government are currently looking at the UX element of the Lle platform and there is potential for future developments to increase functionality. Lle currently in Beta with an update due in April 2019 to increase stability and performance.
20. Will the Company that worked with you on the Discovery Phase, have the opportunity to bid for these next phases ?
Yes, the company which undertook the discovery phase will be permitted to bid for the opportunity.
21. Could we request access to the outcome of the discovery phase project to identify business and user requirements for electronic registers and associated data? This should assist us in submitting our response.
For a copy of the discovery phase report please contact
22. We are currently cleared to BPSS level. If shortlisted, would your department be prepared to act as NSV sponsors for an SC application?
Yes, however SC cleared staff must be available for the start of the contract.
23. Can we request the discovery output documents as per your DOS notice?
For a copy of the discovery phase report please contact
24. Will this development be subject to GDS assessment / approval?
No, the Welsh Government are not subject to GDS approvals
25. You state that "We would expect the supplier to be able to work at Welsh Government offices when required." What does this mean? Are you expecting co-located working or just occasional face-to-face meetings?
Predominately the work can be undertaken remotely. However, there will be occasions where the Supplier will be required to work from the Welsh Government offices.
26. Please can you provide a copy of the outputs from the Discovery phase, or if those are not yet available volumetrics relating to the number and type of sources of commons data e.g. maps, written registers to be captured as part of the data migration?
For a copy of the discovery phase report please contact
27. Do the personnel involved in undertaking the data migration e.g. map digitisation, scanning also require SC level clearance?
Only team members with access to Welsh Government systems will require SC clearance.
28. You state that from the Discovery Phase "all documents are available on request". May we please see these documents.
For a copy of the discovery phase report please contact
29. As the submission deadline is Monday 3rd of December, would it be possible to share the discovery output documents and outputs from the Q&A session on the 22nd November?
Questions from the Q&A sessions have been published on the Digital Marketplace.

For a copy of the discovery phase report please contact"
30. Would it be possible to request an extension of a week to complete the evidence stage of this procurement, as we have not been able to access the discovery documentation?
A copy of the discovery phase report can be obtained by messaging The discovery report shall be issued before the shortlisting stage has been completed and should not impact the evidence stage. Therefore we would not be able to provide an extension to the deadlines.
31. Is there a recording available from the question and answer session on 22 November please?
No, we have published the questions raised on the Digital Marketplace.
32. What is the timescale for this opportunity between this submission on 3 December and contract start in March 2019?
Sift outcome letters issued w/c 10/12 2018. Full proposals submitted by 21st December 2018. Supplier presentation days 16&17/01/2019. Tender outcome letters issued week commencing 28/01/2019. Contract issued w/c 4/02/2019
33. What is the timescale for this opportunity between this submission on 3 December and contract start in March 2019?
Sift outcome letters issued w/c 10/12 2018. Full proposals submitted by 21st December 2018. Supplier presentation days 16&17/01/2019. Tender outcome letters issued week commencing 28/01/2019. Contract issued w/c 4/02/2019
34. What are your greatest concerns / risks that have come out of the analysis of the Discovery that you are looking to a supplier to address?
The key risks centre around the data migration element of the project in terms of the logistics of working across 22 Local Authorities, managing the volume and "physical state" of the registers, the agreement, application of the rules and standards for data migration, management around "unknowns" as issues are likely to arise as the data migration process progresses.
35. Will there be any interfaces or APIs to other Government services such as Verify / Notify / Pay etc?
The Discovery Phase did not go into this level of detail.
36. Regarding Lle, would you please provide information on what developments are currently ongoing, which technologies are used, which GIS layer formats are supported, and any interoperability considerations ?
Lle front-end is built using Asp.Net MVC, Angular and OpenLayers. Spatial data is held in postGIS and Microsoft SQL Server. Mapping services are provided by Geoserver and Geowebcache. We are currently undergoing a review of the Lle infrastructure with a view to improve performance, reliability and resilience. We expect the winning contractor to work closely with us to develop the web portal using the same technologies and existing infrastructure.