Tax Agent Population Research
DWP/HMRC Social and Economic Research Services –
Procurement Framework
Invitation to Tender
Knowledge, Analysis and Intelligence
Bush House, S.W. Wing,
South Spur, 4th Floor,
Strand,
London,
WC2B 4RD
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1. Introduction
1.1
HM Revenue and Customs (HMRC) wishes to commission a research project
that will help HMRC to understand the attitudes, needs and behaviours of tax
agents towards the use of digital services.
1.2
Agents are a key customer group for the Department, helping individuals and
businesses to comply with tax obligations. It is estimated that there around
43,000 paid agents operating in the UK who represent 8 million customers.
1.3
The Department is seeking to encourage greater use of digital services
among the tax agent community in keeping with the digital strategy published
in 20121. The Department is keen to understand how the agent community is
likely to respond to the increasing use of digital services, and what support
and incentives might be useful for helping agents to make the transition to
digital.
1.4
The research will segment the agent population according to their use of
digital services and level of support they will need to make the transition to
digital. The research will therefore need to include both a quantitative survey
of a sample of the agent population and qualitative fieldwork to test the
validity of the segmentation. It is envisaged that fieldwork will commence in
March 2014.
1.5
The research will also update the Department’s knowledge about the agent
community following the completion of research which was published in
20092.
Summary of key requirements
1.6
The project will include a survey of 1,700 agents and qualitative research with
a sub-sample of these respondents. In the short term, the development work
for the survey and fieldwork are expected to take place as soon as possible,
with ideally around two-thirds of the fieldwork completed by the end of the
2013/14 financial year. The segmentation analysis and qualitative fieldwork
are expected to take place early in the 2014/15 financial year, and reporting
to take place in the summer of 2014.
2. Policy background
2.1
HMRC plays a pivotal role in UK society as the tax administration and
collection body. This includes facilitating the collection of the right amount of
taxes from customers for the Exchequer from which to fund delivery of
government objectives.
2.2
HMRC regularly reviews different options to facilitate customers’ engagement
with HMRC and to help them pay the right amount of tax while achieving
value for money for the taxpayer in terms of the Department’s operating
costs. HMRC’s digital strategy aims to help customers engage with HMRC in
a simpler way, reducing customer burden.
1
The digital strategy can be accessed at:
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/89244/2012digital-strategy.pdf
2 The results of this research are reported at: http://www.hmrc.gov.uk/research/report120.pdf
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The role of agents and digital services
2.3
HMRC wants to support agents and make it as straightforward as possible for
them to fulfil their client’s tax obligations. In order to facilitate this, HMRC are
introducing new digital services to a small number of agents in autumn 2014
followed by a gradual release to the wider agent population. HMRC digital
services offering aims to:
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3.
help agents take more control of their clients' tax affairs
let agents carry out the same tasks online as their clients
reduce the need for agents to contact HMRC
make the information about client tax affairs more accurate and up-to-date
reduce costs to both agents and HMRC
Project Aims and Research Questions
Aims
3.1
The primary aim of the research is to provide a demographic segmentation of
the population of paid (professional) tax agents according to their use of
digital services, their needs and the support they will require to make the
transition to digital. The segmentation would ideally be such that HMRC can
identify agents in different segments using data held by the Department.
However, the segmentation may make use of additional factors which are not
identifiable on HMRC systems if this improves the quality of the analysis.
3.2
A secondary aim of the project is to explore the ways in which HMRC can
facilitate agent’s transition to digital, and explore how digital services will
influence the operation of the agent market and client-agent relationships.
3.3
Finally, the project will update the Department’s knowledge about the paid
agent community by profiling the agent population in terms of geodemographic variables developed via research published in 2009 (see
paragraph 1.5).
Research Questions
3.4
The key research question is ‘How do paid tax agents’ behaviours, skills and
attitudes influence their readiness for the transition to digital services”?
3.5
The project will address the overall research question by considering the
following sub-questions, which are listed in order of priority:
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What geo-demographic segments of the agent population are more ready
(in terms of attitudes and capabilities) to use HMRC’s digital services and
what segments are less ready?
What are the barriers and enablers for agents seeking to use digital
services?
How can HMRC help different segments of the agent population make the
transition to digital?
How do agents access information about HMRC and what role do digital
services play?
How will digital services influence agents’ contact with HMRC?
How will digital services influence agent-client relationships?
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What impact will the increasing use of digital services have on the agent
market and how agents compete for custom?
3.6
HMRC invite bidders to suggest research designs which will address both the
primary and secondary aims of the project, as described above.
4.
Basic Design
Background
4.1
In order to segment the population of paid agents according to their
‘readiness’ for digital services it is envisaged that a mixture of quantitative and
qualitative research methods will be used. The qualitative component of the
research will also be important for addressing the secondary aims of the
research.
Questionnaire development
4.2
In 2008, HMRC commissioned ICM to carry out quantitative research to
improve the Department’s understanding of the paid agent community3. The
successful tenderer will produce a new questionnaire which may utilise
questions developed for the 2009 survey alongside new bespoke questions.
4.3
Because of the tight timescales for this research, there is not the capacity to
cognitively test new survey questions. Bidders should bear this in mind when
developing the new questionnaire.
Survey piloting
4.5
HMRC would like the research to include a small scale pilot to test the
administration of survey instruments, questionnaire design and interview
length. We appreciate the tight timescales for this project, and welcome ideas
for piloting.
4.6
If the pilot is successful and there are no changes to the questionnaire, the
resulting data could contribute towards the target number of interviews
required for the main survey if contractors can demonstrate this will not
compromise the sample design.
Sample
4.5
The preferred option is for the sample of agents to be drawn from HMRC’s
administrative databases. It will be a random probability sample of the agent
population, stratified in order to ensure a sufficient number of smaller agents
(sole traders and partnerships) which are of particular interest in order to
facilitate sub-group analysis. At present, it is anticipated that roughly 3 times
the number of desired respondents will be supplied, but this may increase.
4.6
It is unlikely that valid telephone numbers will be included for most of the
sampled businesses. It may also be necessary to remove duplicate agent
enterprises from the sample as it will be drawn from several sources. Costs
for telephone matching and the removal of duplicate agents from the sample
must therefore be provided by the contractor.
3
A report of this work is available at: http://www.hmrc.gov.uk/research/report120.pdf.
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5.
Quantitative fieldwork
5.1
Advance letter and recruitment approach - Letters will need to be sent to
the respondents in advance, both to give potential respondents the choice of
opting out of the research, and to provide an interview brief. Initial contact will
be crucial for recruitment of survey respondents, and tenderers should
include details on their proposed approach including the experience of
interviewers, and details about briefing and debriefing processes.
5.2
Telephone interviews – Interviews would be expected to last around 20
minutes by CATI. Where the sampled agent is a larger business (as opposed
to a sole trader) interviews should be with a person who can provide
responses on behalf of their business (e.g. director or senior manager).
5.3
The survey will need to include screener questions to ensure that the
sampled business is acting as a paid agent.
5.4
HMRC propose that the survey achieve responses from around 1,700 agents
to facilitate the segmentation analysis. However, we are open to suggestions
about the appropriate number of respondents given the aims of the research.
Bidders are therefore asked to propose recommended and minimal designs
for the survey.
5.5
HMRC propose that the survey will achieve a large number of interviews in a
relatively short period of time (see Table 1, 10.1 for project timetable).
Tenderers should illustrate that they have the capacity to deliver the research
in a timely way and that they have a fully trained and experienced field force
able to conduct interviews with businesses. Bidders are also welcome to
highlight any risks associated with this approach to data collection and how
these would be mitigated. Further, bidders are welcome to propose
alternatives either in terms of number of interviews or the fieldwork timetable
in order to ensure the project achieves its aims and objectives.
5.6
Survey response rate - It is important that a high response rate is achieved
for the survey. Bidders are asked to provide their best case; most likely and
worst case scenarios for response rates and the implications of each of these
on achieved sample sizes. As a guide, our desired response rate is 50% or
more.
5.7
Bidders are expected to provide a detailed description of their proposals to
encourage a high response rate. This includes the initial approach to agents
and re-assurances about confidentiality and anonymity.
5.8
Data processing - Bidders are expected to use Computerised Assisted
Telephone Interviews (CATI) technology to capture data for the main
fieldwork and should outline their approach to editing and processing the
data. Bidders who are proposing to apply data imputation approaches should
describe their proposal in detail.
6.
Data Analysis and Weighting
6.1
Segmentation analysis - The primary purpose of the research is to segment
the population of agents according to their appetite and readiness for digital.
The segmentation should be based on demographic information in order to
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allow HMRC to identify which segment agents are likely to be in based on
data held by the Department.
6.2
There are several possible ways of undertaking segmentation analyses.
Bidders are invited to suggest an appropriate methodology and describe the
advantages and disadvantages of the chosen approach.
6.3
Descriptive statistics - The research should also provide an up-to-date
picture of what the population of agents looks like now, building on the
research which was carried out in 2009. The successful contractor will be
required to produce frequency tables for the key variables of interest, and
include a discussion of these in the final report.
6.4
Tenderers will be expected to weight the results for this descriptive analysis in
order to correct for survey non-response and stratification. Bidders are asked
to demonstrate their ability to construct weights for analysis.
7.
Qualitative interviews and focus groups
7.1
We are also interested in conducting qualitative research after the completion
of the quantitative survey in order to test the validity of the segmentation
analysis, address the secondary aims of the project and provide rich data for
case studies. We envisage that a mixture of in-depth interviews and focus
groups will be useful for these purposes, but we invite bidders to make
suggestions about research design and methodology in order to achieve the
project aims.
7.2
It is envisaged that around 20-30 in-depth interviews and 6-8 focus groups
will be required but we are open to suggestions.
7.3
Tenderers are invited to propose a detailed qualitative methodology, including
details of sampling, recruitment and analysis. Please also state the expected
duration of these interviews and focus groups and mode, e.g. face-to-face,
telephone etc. The successful contractor will need to demonstrate their
experience (organisational and key personnel proposed for the project) of
designing and conducting qualitative research.
7.4
Bidders are invited to suggest different options for the qualitative element of
the research, and to suggest recommended and minimal alternatives.
Tenderers are asked to provide separate costs for the different options
described in paragraph 7.3. They should also include costs for a sample of
anonymised transcripts of the qualitative interviews and focus groups.
7.5
In approaching potential respondents, letters will need to be sent to the
respondents in advance, both to give potential respondents the choice of
opting out of the research, and to provide an interview brief.
8.
Outputs
8.1
HMRC envisages the successful contractor to produce the following outputs
(in electronic formats), although please note that this is still a provisional list of
outputs:
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Detailed project plan, outlining key dates and milestones, and clearly
indicating any actions for HMRC;
Briefing note on the pilot work. This should include a short discussion of
the results of the pilot and the implication for the main stage fieldwork,
including lessons learned;
Regular progress updates, including survey response rates;
Full dataset of the main survey in a format agreed with HMRC4
A copy of the questionnaire, other material and documentation. These
will need to be sufficient to allow others to analyse the data in case the
dataset is placed in HMRC’s Datalab;
Details of the descriptive statistics and segmentation analyses, including
the syntax or code used to produce these;
A sample of transcripts of the qualitative interviews and focus groups;
A slide pack for an interim presentation of top-line findings;
Full report of the findings, presenting the results of the descriptive and
segmentation analyses as well as the results of the qualitative research.
Three presentations of the final results to HMRC with good quality
presentation slides.
8.4
The contractor should assume that reports, questionnaires and fieldwork
materials may need to be amended in the light of comments made by HMRC
and that at least one draft, possibly more, will be required before agreeing a
final draft. Allowance should be made for this in the proposed timetable and
cost for the research.
9.
Project team
9.1
Bidders should give details of their proposed project team, outlining their
expertise and relevant experience. All personnel to be involved must be
named in the tender and their roles and number of allocated days must be
specified. The project team must include staff with relevant advanced
experience and knowledge in survey design and methods. Proven ability to
conduct research with businesses is essential, while experience of conducting
research with the professional agent community would be desirable.
Proposals should summarise the skills and expertise that particular members
of staff bring to the team and clearly identify the project manager, with CVs
included as an annex.
9.2
Tenderers are also expected to clearly indicate whether any elements of the
project will be undertaken by different teams or not, and provide information
about the structure of the project team and how work will be organised.
HMRC expects bidders to nominate one named lead in their organisation who
will oversee the whole project to ensure efficient communication between
HMRC and the successful contractor.
9.3
HMRC acknowledges that considerable resources are required for the
successful delivery of this project to time. It is possible that agencies invited to
tender have the skills and ability within their organisation to undertake all or
part of this survey but do not have sufficient resources required to
4
This anonymised dataset may be made available to a wider academic community through a HMRC
secure environment.
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successfully deliver the whole project requirement. We therefore encourage
agencies to collaborate with other suppliers to ensure that they are fully
capable of undertaking this work.
9.4
The proposal should specify details of which parts (if any) of the project will
be sub-contracted, the name of the sub-contractor who will work on the
project, their experience of related research, and their responsibilities within
the project. Tenderers should specify the extent to which they have worked
with any proposed subcontractor in the past. If it is proposed to sub-contract
any of the work, the same details as those provided by the tenderer should be
given about the qualifications, experience and responsibilities of staff involved
along with a description of their respective roles and the management
arrangements put in place. Ultimately, however, the successful contractor will
be held to account for the performance of any sub-contractor and needs to
demonstrate their confidence to successfully manage sub-contractors.
10.
Proposed Project Timetable
10.1
The timetable for the procurement and research tasks is outlined in the table
below. The dates outlined for various stages are provisional. We anticipate
that the contract will start in January 2014. The time allowed for fieldwork is
particularly tight (7-8 weeks). Tenderers are asked to demonstrate that their
field force is capable of completing the survey in this length of time, or provide
alternative suggestions, which still allow key deadlines to be met. Ideally,
around two thirds of the fieldwork would be completed by the end of March
2014.
Table 1: Proposed procurement and research timetable
Procurement
Research
Reporting
Activity
Issue ITT
Deadline for ITT
Interviews (if needed and Contract awarded)
Set-up meeting
Quantitative research preparation
Quantitative fieldwork
Segmentation analysis
Date
6 January 2014
24 January 2014
w/c 3 February 2014
w/c 10 February 2014
February
March to mid April
Late April to mid May 2014
Qualitative research preparation
Qualitative fieldwork
Interim presentation of headline results to HMRC
Report of results (both quantitative and qualitative)
delivered to HMRC
Two or more presentations of the results to HMRC
May 2014
Late May to mid June 2014
Mid June 2013
End of July 2014
End of July to early August 2014
11.
Quality and Risk Management
11.1
The contractor must provide a quality control plan with their proposal that
demonstrates their internal procedures to assure quality control. In particular
this should include measures to quality assure fieldwork design; fieldwork
procedures and quality assuring final outputs including datasets. HMRC
would expect this to cover questionnaire checking; edit checks; data checks;
strategies for achieving high response rates; management of fieldwork calls;
monitoring of interviewer performance; strategies for minimising missing data
and processes for delivering datasets.
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11.2
Proposals should also include an assessment of the key risks to this project.
This should identify the most significant risks to successful completion of the
programme of work, assess the degree of risk (likelihood and impact), set out
strategies for minimising these risks and managing the consequences if
problems occur. For example, the quantitative segmentation not being
validated during the qualitative fieldwork stage. See the separate excel sheet
in Annex C as an example of the template HMRC require research
contractors to complete.
12.
Resourcing and Pricing
12.1
Tenderers are invited to propose how they would meet these requirements in
the form of a programme of work. Tenderers must include a project plan and
time schedule for the work that identifies the main tasks and key milestones
that will be used to monitor progress, indicating clearly where HMRC is
expected to contribute. The plan should also be accompanied by a resource
profile, giving a breakdown of the resources in person days to each task.
12.2
The proposal must include a firm price offer (excluding VAT) and a
breakdown of costs by:
Table 2: Project costings
Activity
Personnel
(level of
staff)
Number of
days per team
member
Day rate
per team
member
Overheads
Survey preparation including
telephone look-ups, the removal of
duplicate businesses from the
supplied sample and sending opt-out
letters to potential respondents.
Survey piloting and fieldwork including
briefings, debriefings, data capture,
editing and processing for the
recommended and minimal designs
(see Section 5.4).
Data analysis (the construction of
weights, descriptive statistics and
segmentation analysis).
Qualitative in-depth interviews and
focus groups for the recommended
and minimal designs (see Section
7.4), transcription costs and
qualitative data analysis.
The written report of the findings.
Four presentations of the findings to
HMRC (an interim findings
presentation and three final
presentations). Please also provide
the cost of an additional presentation.
Other costs; including administration,
travel and subsistence.
VAT (if applicable).
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Total
(£)
Note: Tenders that do not supply a schedule of costs in the format outlined
above will not be accepted.
12.3
Bidders are asked to clearly state whether the decision not to continue with
this project at any stage would have additional costs associated for them, and
to provide a justification for these costs. Any additional costs identified will be
subject to negotiation and agreement with HMRC prior to any contract being
awarded.
12.4
Please indicate whether VAT would be payable. This is not a factor in
determining which tender is successful, but the information is useful to assist
our financial planning.
12.5
In costing your tender you should allow for attendance at around three
meetings to be held in central London. These might include the following:
 A set-up meeting
 A progress meeting
 A post-project review meeting
12.6
HMRC may require additional meetings and presentations to those as
itemised in sections 12.2 and 12.5 above. Tenderers should supply costs per
meeting and presentation.
13.
Tender Evaluation Criteria
13.1
Tenders will be evaluated on best value for money. This will be judged on the
basis of assessment of proposals (supplemented where relevant by
discussion at interview) against the following quality criteria set against overall
cost (excluding VAT):
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13.2
how well the aims, objectives, policy drivers for the project and detailed
information requirements are understood and addressed;
fieldwork standards, data capture, processing and weighting strategies,
how professional and ethics standards will be met;
how well the tenderer demonstrates an understanding of segmentation
analysis;
the extent to which the tenderer demonstrates expertise in qualitative
research;
proposed team composition and its expertise in conducting research with
agents/businesses, including the team’s project management skills and
the ability to deliver the research to tight timescales.
Tenders will be evaluated against the above criteria using the five point scale
below. All criteria will be equally weighted.
Score
0
1
2
3
4
Description
Totally fails to meet the requirement
Meets some of the requirement, with limited supporting
information
Meets some of the requirement, with reasonable explanation
Fully meets the requirement, with detailed explanation/evidence
in support
Exceeds the requirement, with detailed explanation/ evidence in
support
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13.4
Whilst contract price will be an important consideration, it is only one of a
range of important factors affecting any decision to award a contract.
Therefore HMRC reserve the right not to accept the lowest priced (or any)
tender.
13.5
HMRC will select the successful tendering organisation(s) based on the
criteria above. Tendering organisations may be invited to interview by the
HMRC before the selection is made, with interviews provisionally scheduled
for early February 2014. Following selection, any necessary post-tender
negotiations will be held with the preferred supplier in order to finalise the
work programme prior to awarding the contract. Any contract offered in
connection with this research will be subject to the Terms and Conditions of
the Framework Agreement.
14.
Commissioning Conditions
14.1
The DWP/HMRC Research Framework 2013 Terms and Conditions will form
the basis of the contractual agreement between the successful tendering
organisation and HMRC.
14.2
The contractual agreement will be subject to the contractor complying with the
Official Secrets Acts and related Legislation including Section 18 and 19 of
the Commissioners or Revenue and Customs Act 2005.
14.3
HMRC retains the option of whether or not to commission the study, or any
element of it.
14.4
Terminating the contract - HMRC reserves the right to terminate the contract
prematurely (for any reason) should this be deemed necessary. In the event
that it would become necessary to terminate or adjust the contract, HMRC will
cover costs for services provided up to that point. Contractors should not
book or schedule fieldwork until written confirmation has been provided by
HMRC. Contractors should provide a cancellation policy, including details of
charges (if any) should it be necessary to cancel fieldwork.
14.5
Additional contractual information is included in Annex B.
15.
Data Security and Protection
15.1
The successful contractor will be required to submit a security plan before the
start of the contract. This will detail your approach to safeguarding
confidential information including your company policies for handling sensitive
documents and computer files from unauthorised access.
15.2
If you intend to involve sub contractors at any stage of the project please
include details of how you will ensure their compliance with all aspects of the
Security Plan.
15.3
The requirement on Data Security is set out at Schedule 5, Appendix 6 of the
Framework Call off Terms and Conditions. A Security Plan questionnaire is
attached (please see Annex D).
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16.
Other Ethical Issues
16.1
To preserve confidentiality and anonymity, details of individual participants in
the research must not be included in the analysis and reports
16.2
Published outputs of statistics will be consistent with statistical disclosure
guidelines, as advised by HMRC.
17.
Procurement Transparency
17.1
HMRC is obliged to publish tender documents for all contracts with a whole
life value of over £10,000. It is a condition of bidding for this work that
applicants agree to the subsequent publication of the contract once awarded.
17.2
If Bidders believe that any of the information requested is commercially
sensitive they should provide such information in a separate letter.
18.
Research Management
18.1
The HMRC project manager for the work will be Eleanor Rutherford. She will
be responsible for the day-to-day management of the contract. Once the
contract has been awarded, all contact with HMRC concerning the project
should be made through her. The research organisation will be required to
appoint a contract manager who will act as the principal point of contact for
the Department.
18.2
The research organisation will be expected to work closely with the HMRC
project manager and through her, with internal customers within HMRC
throughout the duration of the contract. She must be kept informed of
progress and be involved in key decisions. Proposed changes in project
staffing (at all levels) or deviations from the agreed work programme must be
discussed and agreed with the project manager in advance. She is
responsible for all decisions that involve funding.
18.3
In costing your tender you should allow for attendance at a minimum of 3
meetings in the 2013/14 and 2014/15 period as discussed in Section 12. The
majority of meetings are expected to take place at HMRC offices in London,
although some may take place at the research organisation’s premises by
arrangement.
19.
Summary of Requirements
19.1
Tenders should include the following information:
 A summary of proposals including a firm price bid (exclusive of VAT) as
detailed in Section 12;
 A detailed explanation of proposals to meet the aims and objectives
outlined above. This should include details of methodology;
 A detailed timetable for the proposed research for each specific
information requirement, taking into account that outlined in Section 10;
 Quality control procedures and risk register as outlined in Section 11 (as
annexes);
 Curriculum Vitae of key personnel proposed, their status within the
company, area of expertise and details of their individual chargeable day
rates;
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page
2009
included
in the
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research
makers
Low
No
Yes
for
decision
Perception
Rule
Breakers
Need
Willing
Prioritisation
Ability
Able
cash
Ongoing
Potential
Payment
Unaware
difficulties
of
Acceptability
Awareness
Deferrers
Hidden
Boundary
Risk
payment
evasion
Breakers
flow
Help
but
and
economy
Rule
Payment
pushers
segmentation
Segmentat
ion
overview


Chargeable rates for other personnel proposed. Where these can be
identified as groups (e.g. administration, support etc.) then a group rate
will suffice;
Any further costs identified.
Tenders should not exceed 30 pages (excluding Annexes). Information included after
this limit will not be considered under the tender evaluation process.
20.
Contact details and queries on the ITT
20.1
Please send any queries you have to [Redacted under Section 40 of the Freedom of
Information Act]. Note that all queries will be shared between contractors. The
deadline for submitting queries on the tender will be 4pm on 20th January
2014.
21.
Information on How and When to Return Tenders
21.1
Tenderers should notify of their intention to submit a proposal by email to
[Redacted under Section 40 of the Freedom of Information Act] by 4pm Friday 20th
January 2014.
21.2
Bidders should submit a tender stating how all the requirements outlined in
this document will be met. The proposal must contain sufficient information to
enable HMRC to evaluate the proposals.
21.3
Please read the enclosed Instructions for Tenderers (Annex A) carefully.
21.4
Please email a PDF or read-only version of your tender to [Redacted under
Section 40 of the Freedom of Information Act] and [Redacted under Section 40 of the
Freedom of Information Act]. Tenders should be submitted by email by 5pm on 24th
January 2014 (unless the date is subsequently amended in writing by the
Department).
In summary, tenders should note the following:
Action
Deadline
Notify your intention to 4pm on 20th January 2014
submit a proposal
Submit queries on ITT
4pm on 20th January 2014
Submit read only tender 5pm on 24th January 2014
via email
Contact
[Redacted under Section 40 of the
Freedom of Information Act]
[Redacted under Section 40 of the
Freedom of Information Act]
[Redacted under Section 40 of the
Freedom of Information Act]
HMRC, January 2014
Protective Marking: OFFICIAL UNMARKED. Do not copy, cite or circulate this document
without prior permission from HMRC.
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