Introduction
This report examines the procurement and contract management failures associated with the National e-Titling System project under the Ministry of Land Titling’s Project Execution Centre (PEC). Designed to revolutionise property transfers by reducing processing times from months to hours and curbing fraud and errors, the e-Titling System initiative has instead encountered significant challenges. Issues range from irregularities in tendering and contract amendments to poor system performance and governance lapses. Commissioned by the Permanent Secretary to address these recurring procurement failures—evidenced by this being the fifth problematic exercise—this report identifies critical issues in the procurement process with Quarrie-Rodgers LLC and offers actionable solutions. The analysis focuses on transparency, accountability, and compliance with best practices in public procurement, aiming to strengthen future processes.
Key Issues in Procurement and Contract Management
Irregularities in the Tendering Process
A fundamental issue in the procurement of the e-Titling System was the lack of due diligence during the tendering phase. Quarrie-Rodgers LLC failed to submit a dossier of previous projects with its bid, a standard requirement to assess a contractor’s capability and track record. Public procurement guidelines, such as those outlined by the UK Government, emphasise the importance of evaluating past performance to ensure supplier reliability (Cabinet Office, 2015). Awarding the contract without this critical documentation suggests a lapse in adherence to procurement principles, potentially compromising the selection of a competent provider. Furthermore, the subsequent revelation by the Integrity Commission of a personal relationship between a director of Quarrie-Rodgers LLC and the Minister of Land Titling, Amanda Dixon, raises serious concerns about conflicts of interest and impartiality, undermining trust in the process.
Unauthorised Contract Amendments
Post-award, the contract duration for maintenance was extended from three to five years at the discretion of the PEC’s Procurement Officer, who accepted discounts offered by Quarrie-Rodgers LLC without consulting authorised Ministry officials. Such amendments contravene basic procurement ethics and governance frameworks, which require formal approval for significant contractual changes to prevent undue influence or corruption (OECD, 2016). This unauthorised action not only reflects poor oversight but also highlights a systemic weakness in internal controls within the PEC, allowing individual officers to bypass established protocols. Consequently, the integrity of the contract formation process was compromised, potentially exposing the Ministry to legal and financial risks.
System Delivery Delays and Performance Failures
The e-Titling System was installed on 31st August 2025, two months beyond the agreed delivery date, indicating project management deficiencies on the part of Quarrie-Rodgers LLC. More critically, post-installation testing revealed multiple system failures, with ongoing issues persisting despite significant government expenditure on repairs and integration with other systems. The recurring nature of these technical problems—where fixing one area causes another to malfunction—suggests poor quality in system design and development. This aligns with broader literature on IT procurement in the public sector, which notes that inadequate specification of requirements and insufficient testing often lead to suboptimal outcomes (Heeks, 2006). The Ministry’s continued investment in rectifying these flaws points to a lack of robust contractual mechanisms, such as penalty clauses for non-performance, to hold the contractor accountable.
Governance and Accountability Deficiencies
Governance failures are evident at multiple levels within the PEC. The absence of oversight over the Procurement Officer’s actions, coupled with the lack of transparency regarding the Minister’s personal connection to Quarrie-Rodgers LLC, reflects a systemic disregard for accountability. The Special Report by the Integrity Commission underscores the need for stricter conflict-of-interest policies in public procurement. Moreover, the fact that this is the fifth procurement exercise to fail indicates a recurring pattern of mismanagement, likely rooted in inadequate training, unclear procedural guidelines, and weak internal audit mechanisms (World Bank, 2014). These lapses collectively erode public trust and hinder the Ministry’s ability to deliver value for money—a core principle of public procurement.
Proposed Solutions for Improved Procurement Practices
Strengthening Tendering and Evaluation Processes
To prevent recurrence of tendering irregularities, the PEC must adopt a rigorous evaluation framework aligned with international standards, such as the UK Public Contracts Regulations 2015. This includes mandatory submission of past project dossiers by bidders and transparent scoring criteria to assess technical and financial capabilities. Additionally, an independent audit team should review bid evaluations to ensure impartiality. To address conflicts of interest, mandatory disclosure of personal or financial relationships with bidders should be enforced for all Ministry officials involved in procurement, with non-compliance leading to disciplinary action (OECD, 2016). These measures can enhance fairness and reduce the risk of bias.
Enhancing Contract Management and Oversight
Effective contract management requires clear delineation of authority within the PEC. Contract amendments must be subject to formal approval by a designated committee, rather than unilateral decisions by individual officers. Implementing a digital contract management system could facilitate tracking of changes and maintain an audit trail, ensuring transparency. Furthermore, contracts should include explicit performance benchmarks and penalty clauses for delays or non-compliance, as recommended by best practices in public sector IT procurement (Heeks, 2006). Regular progress reviews and independent quality assessments during system development can preemptively identify issues, reducing the likelihood of costly post-delivery repairs.
Building Capacity and Governance Structures
Addressing systemic governance failures necessitates capacity building within the PEC. Staff training on procurement ethics, conflict-of-interest policies, and IT project management should be mandatory, with periodic refreshers to keep pace with evolving standards. Establishing a dedicated procurement oversight body within the Ministry can ensure compliance with procedures and provide a mechanism for internal audits. Drawing on global frameworks, such as the World Bank’s procurement guidelines, the PEC should also develop a clear accountability structure with defined roles and responsibilities to prevent overreach by individual officers (World Bank, 2014). These steps can foster a culture of integrity and professionalism.
Improving IT System Procurement Specificity
Given the technical failures of the e-Titling System, future IT procurements must prioritise detailed requirement specifications and robust testing phases before full rollout. Engaging technical consultants during the tendering phase can help define system needs accurately, while phased implementation with pilot testing can mitigate risks of widespread failure. Moreover, adopting an agile development approach—where iterative feedback loops are integrated—can ensure adaptability to emerging issues (Cabinet Office, 2015). These strategies, though resource-intensive initially, are likely to deliver long-term cost savings by minimising post-installation fixes.
Conclusion
The National e-Titling System project highlights significant deficiencies in the Ministry of Land Titling’s procurement and contract management practices, ranging from tendering irregularities and unauthorised amendments to system performance failures and governance lapses. These issues, compounded by a lack of accountability and transparency, have undermined the project’s objectives and eroded public trust. By implementing robust evaluation processes, enhancing oversight through digital tools and committee approvals, building staff capacity, and refining IT procurement specificity, the PEC can address these challenges. The implications of these reforms extend beyond this project, offering a blueprint to prevent future procurement failures and ensure value for money in public spending. Ultimately, sustained commitment to ethical standards and procedural rigour is essential for the Ministry to restore credibility and achieve its transformative goals.
References
- Cabinet Office. (2015) Public Contracts Regulations 2015. UK Government.
- Heeks, R. (2006) Implementing and Managing eGovernment: An International Text. SAGE Publications.
- OECD. (2016) Preventing Corruption in Public Procurement. Organisation for Economic Co-operation and Development.
- World Bank. (2014) Guidelines: Procurement of Goods, Works, and Non-Consulting Services under IBRD Loans and IDA Credits & Grants. World Bank.
