Request for Proposal (RFP) for a firm to ‘Develop a Learning Management System for the Inland Revenue Service Academy’

Request for Proposal (RFP) for a firm to
‘Develop a Learning Management System
for the Inland Revenue Service Academy’

Proposal Submission Deadline: 21 st October 2025

1. Brief overview
Revenue Mobilisation, Investment and Trade (REMIT) programme is a nine-year (2019- 28) technical assistance programme funded by the Foreign, Commonwealth & Development Office (FCDO), United Kingdom to support Pakistan in implementing strategic reforms in the realm of economic development, trade, investment and revenue mobilisation. The key outcomes under the programme will be contributing towards strengthening the macroeconomic stability and improving conditions for high and sustained growth, mutual prosperity, job creation and poverty reduction in Pakistan. More specifically, REMIT programme aims at supporting the Government of Pakistan in the following areas:
1. Enhance revenue mobilisation capabilities and help raise the tax/GDP ratio by increasing the number of taxpayers.
2. Address the investment climate constraints faced by local and international businesses and support Pakistan in moving towards being one of the top reformer countries to do business in creating ease for businesses.
3. Facilitate trade and drive competitiveness by reducing barriers to trade and reducing Pakistan’s trade deficit by helping increase exports.
4. Modernise formulation and implementation of macroeconomic policy to avoid future financial crises.

As part of its Revenue Mobilisation Workstream, REMIT is collaborating with the Federal Board of
Revenue (FBR) to enhance operational efficiency through digital transformation. This assignment
focuses on modernising training programs at FBR's IRS Academy by developing a centralised
Learning Management System (LMS). The LMS will standardise curricula, track trainee competencies,
and scale professional development for both new CSS inductees and in-service officials, supporting
FBR's broader institutional reform goals. The system aims to create a more robust, data-driven
approach to building workforce capabilities in tax and customs administration.

2. Task Background
The intervention involves conducting inception workshops with the IRS Academy to validate needs against identified problem clusters, including manual management, scattered resources, tracking gaps, scalability, engagement, and alignment with global practices. A detailed Solution Architecture will be developed, covering the LMS core, LRS (for xAPI), integrations (LTI), identity management (SAML 2.0), hosting, security, and data protection controls. The LMS will be configured with customized themes, roles, workflows, catalogues, learning paths, and badges, while content pipelines for SCORM/xAPI will be established. Priority training modules, such as STP, onboarding trainings, in-services trainings, DST & the new PGD alongside in-service short courses, will be migrated, alongside the creation of templates for future content. Analytics dashboards will be implemented to track trainee, cohort, and leadership metrics, aligned with competency frameworks. The solution will ensure WCAG 2.1 AA accessibility and responsive design, with integrations for SSO and pilot testing of LTI-based external tools like virtual classrooms and simulations. User testing with faculty, administrators, and learners will refine the platform, followed by Train-the-Trainer (ToT) sessions. Finally, operations manuals covering governance, content lifecycle, and QA will be prepared, with post-go-live hypercare support to ensure smooth adoption.

3. Objectives of the Assignment
The Objectives of the assigment are as follows:

• Develop and deploy a secure, scalable, and user-friendly LMS for the IRS Academy Standardise curricula and resources to create a single source of truth with version control.
• Enable robust progress tracking, assessments, certifications, and analytics dashboards.
• Support blended learning (in-person + online), micro-learning, and mobile access.
• Integrate with FBR HRIS or HRM System and other existing FBR/PRAL systems wherever required.
• Ensure accessibility and content reusability.
• Establish governance, roles, and processes for sustainable operations and continuous improvement.

The LMS shall be a modern, standards-compliant platform (SCORM/xAPI/LTI 1.3) delivering role-
based learning paths, secure assessments with remote proctoring, rich analytics, delivery in english,
and deep integrations with FBR’s HRMS/SSO—benchmarked to Canvas, Moodle, Open edX, and
Blackboard implementations at leading universities and IFIs.

4. Scope of Work
The selected firm will design, configure, integrate, test, and deploy an LMS (preferably open-source and enterprise-ready, e.g., Sakai LMS or equivalent) with the following capabilities:
Functional Specifications

I. Identity, Access & Governance

• Single Sign-On (SSO) with FBR’s HRMS directory, MFA support; granular roles (Learner,Instructor, Program Manager, Academy Admin, Proctor, External Participant/Guest).
• Provisioning & de-provisioning via standard APIs with attribute mapping (cadre, BS, grade,formation/region, posting, line manager).
• Multi-tenant hierarchy (IRS Academy + sub-campuses/cohorts) with delegated admin and data partitioning.

II. Programs, Courses & Cohorts

• Programs (bundled courses, credit hours), cohorting (induction, STP, Mid-Career or DST,specialized wings), re-runs and rolling enrollments.
• Session & calendar management (class schedules, auto-attendance, waitlists, reminders).
Learning paths by job role/grade (e.g., Assistant Commissioner BS-17
• BS-18 progression,Auditors, Inspectors, LDCs UDCs) with mandatory and elective tracks

III. Content Authoring & Standards

• In-platform authoring studio (WYSIWYG, blocks, templates) and import from third-party tools.
• Standards compliance: SCORM 1.2/2004, xAPI (Tin Can) with Learning Record Store (LRS) support, and IMS LTI 1.3/LTI Advantage for deep tool integrations (virtual labs, proctoring,
• FBR’s CISCO Webex, Zoom/Teams, external assessments)
Media & accessibility: streaming with transcripts/closed captions, image/PDF viewers, versioning and content lifecycle (draft review
• publish).

IV. Assessment, Integrity & Certification

• Assessment engine on the pattern of class marker: rich item types (MCQ, multi-select, numeric/formula, case vignette, file upload, rubrics), pools/banks, randomization, time windows, negative marking, item analysis.
• Academic integrity: secure test mode, lockdown browser support, human/AI remote proctoring via LTI, plagiarism detection integration (e.g., SafeAssign/Turnitin).
• help.blackboard.com
• Credentialing: auto-issued certificates (template, QR/serial verification), Open Badges; CPD hour tracking and renewal workflows.

V. Collaboration & Delivery

• Discussion boards (moderation, pin/endorse), groups, peer review, announcements, Q&A.
• Virtual classrooms & events: native webinar/class session management with FBR’s Conferencing system, Zoom/Teams integration, attendance capture, and recordings auto-posted to the course.
• Office hours and mentorship slots with booking and feedback loops.

VI. Discovery & Knowledge Hub

• Course catalog with search, filters (role, skill, level), tags, featured programs, and recommendations.
• Resource library: policies/SROs/circulars, micro-learning clips, templates, reference decks; link to e-library and with FBR’s Website and other departmental resources

VII. Analytics & Reporting

• Learner analytics (progress, risk flags, inactivity heatmaps), instructor dashboards, program analytics, completion/CPD compliance.
• Assessment analytics (item difficulty/discrimination, distractor analysis).
• xAPI/LRS events; export/API for data warehouse/Power BI. (Open edX/Canvas/Blackboard ecosystems emphasize deep analytics and export.)

VIII. Quality Assurance & Governance

Course workflow (create peer review QA checklist approve

• publish); versioning/change log.
• Surveys & evaluations (Kirkpatrick-style: reaction, learning, behavior, results), auto-triggered at course/program end.
• Instructor dashboard with SLA on grading & feedback turnaround.

IX. Mobility, Offline & Notifications

• Mobile app (learn, quiz, message, download content), offline mode with sync on reconnect, push/email/SMS notifications and digests

X. Integration Interfaces (GovTech-ready)

• FBR’s HRMS integration (auto-enroll on posting/grade changes; write-back completions/CPD to HR record), integration with LMS of LUMS or other third party
• Directory & SSO, email/SMS gateways, document management (policies, SOPs).
• External content/tooling via LTI 1.3/LTI Advantage (simulators, coding notebooks, proctoring, video platforms)

XI. Administration & Support

• Role-based permissions with audit trails (who changed what, when).
• Help center (KB, guided tours), ticketing integration, and in-app announcements for policy/portal changes.
• Theming/branding for IRS Academy.

X. Migration of Legacy Data

• Migration of IRS Academy’s legacy data onto new LMS.

XII. Website Enhancements & LMS Integration:

• The vendor will review the current IRS Academy website, which has been developed in a scalable platform/language.
• The vendor will propose and implement enhancements to improve design, user navigation, content structuring, and responsiveness (mobile/tablet).
• Accessibility compliance (WCAG 2.1 AA) should be ensured.
• The new LMS must be seamlessly integrated into the existing academy website(either as a sub-domain, embedded module, or single sign-on–enabled portal).
• The vendor will ensure that the LMS login, course catalogues, dashboards, and user profiles are accessible directly from the academy’s website.
• The integration should maintain a consistent look-and-feel (branding, themes, colors, logos) between the website and the LMS
• The vendor must ensure that the LMS architecture aligns with the existing website’s technology stack and is scalable for future enhancements.
• APIs or middleware should be configured for smooth data exchange between the website and LMS (user accounts, announcements, news, etc.).
• The vendor should provide documentation for integration, covering security, hosting, and maintenance

XIII. Develop Online Modules

• Conduct a structured assessment of the current STP curriculum to identify which elements can be effectively digitized into online learning modules.Apply modern instructional design methodologies to structure the modules into logicalunits covering lectures, case studies, quizzes, assignments, and practical exercises.
• Convert existing training materials (manuals, presentations, case studies, tax law references) into interactive, multimedia-based digital content, ensuring clarity,
• accuracy, and alignment with the Income Tax Ordinance 2001, Sales Tax Act 1990, and other relevant laws.
• Incorporate audio-visual lectures, scenario-based simulations, infographics, and explainer videos to enhance comprehension and retention.
• Develop all modules in SCORM/xAPI-compliant formats for portability and interoperability within the LMS.
• Conduct a pilot of at least one full module with STP participants, gather structured feedback, and refine the course content accordingly.
• Train IRS Academy faculty in the use of course-authoring tools to enable future course development in-house

Non-Functional Specifications

I. Identity & Access Management

• Single Sign-On (SSO) with SAML 2.0.
• Granular roles/permissions.
• Comprehensive audit logs.

II. Accessibility & UX

• WCAG 2.1 AA conformance.
• Responsive, mobile-first design.
• Offline-capable mobile application (where feasible).

III. Security & Compliance

• Alignment with ISO/IEC 27001 ISMS principles.
• Compliance with FBR Data Governance Framework.
• Multi-factor authentication with HRIS-based credentials.
• Role-based permissions for training access.
• Audit logs for all activities.
• Secure development practices, vulnerability management, backup, and disaster recovery.

IV. Operations & Support

• Content governance model.
• Helpdesk runbook and SLAs.
• System performance monitoring.

5. Functional Requirements
Timeline
Prospective firms must submit a timeline in the response showing the time required to deliver the products and/or services.

Pakistan License, Clearance and Approvals

The prospective vendors will include in the timeline any time needed to obtain any licenses, clearances, and/or approvals required under local legal requirements to produce or deliver the products and/or services described in the Scope of Work.

Qualifications and Experience

Firms should have demonstrated experience in the following:

• The firm must be legally incorporated for a minimum period of five (05) years, with continuous operations demonstrating organizational stability and sustained delivery capacity.
• Proven delivery of enterprise-grade LMS for public-sector or regulated environments (case experience with open-source stacks such as Sakai or equivalent).
• Expertise in SCORM 2004 and xAPI/LRS; demonstrable content migration at scale.
• Integration skills for LTI v1.3/Advantage tools and SAML 2.0 SSO.
• Accessibility engineering to WCAG 2.1 AA; multilingual UX and right-to-left script handling where needed.
• Security engineering aligned to ISO/IEC 27001; secure SDLC, vulnerability management, and incident response processes.
• Capacity to deliver ToT, documentation, SLAs, and post-go-live support.
• Ability to collaborate with FBR/PRAL IT and academy faculty to co-design pathways and assessments.

6. Instructions to Bidders
Bidders should examine all Instructions, Terms and Conditions as given in the RFP. Failure to furnish information required in the RFP or submission of Bids not substantially responsive or viable in every respect will be at the Bidder’s risk and may result in rejection of the bids. Bidders should strictly submit the Bid as specified in the RFP, failing which the bids will be held as non-responsive and will be rejected.
Bids shall compromise a single package containing two folders:
A. Technical Proposal
B. Financial Proposal
Bidders should send soft copies of the Technical and Financial Proposal to the following address:
Soft copies to be sent to: recruitment.remit@adamsmithinternational.com
Proposal Weightings
1. Technical Proposal

Evaluation Weighting

Timelines Bidders should outline milestones and timelines as

per scope of work listed above.

10%

Experience/
credibility

Firm’s capacity to deliver through evidence of past
performance and quality and relevance of past work
and references.
Bidders should include Contact information for no
less than three references from projects similar in
size, application, and scope and a brief description
of their implementation (including location and
year). ASI reserves the right to request and check
additional references.
Bidders should include in this section:
 Full legal name and address of the company
 Corporate and tax registration documents
 Year business was started or established
 Full name of the legal representative (president or
managing director) of the company
 Name of any individuals or entities that own 50% of
more of the company

35%

Approach and
Methodology

ASI will assess the quality of the Response (proposal)
based on the prospective firms’ approach to the
assignment and the technical strength of the proposal.
Approach and methodology should include the
following:
 Methodology with clear implementation
plan/strategy against each aspect of the ToRs.
 Mechanisms to ensure sustainability and continuity
until PRMI’s full implementation.
 A very brief staffing and human resource
mobilization plan

35%

2. Financial Proposal

Evaluation Weighting

Financial
Proposal

ASI expects the price to be cost effective and
reasonable as per current market rates. The financial
proposal will comprise the following:
 The financial proposal should be submitted with
breakdown of costs.
 The price quoted will be fixed for the entire
contract. All prices are to be quoted in GBP £ and
must clearly state all applicable taxes to be included
in the quoted price. REMIT will not allow any
compensation to the approved bidders for variation
in the rate of exchange against dollar or any other
currency. All offers in this respect should be firm
and final.
The quoted price must include all taxes,
installation/integration services and the costs of
delivery/implementation in the required locations.

20%

Prospective firms must be legally registered under the laws of the country in which they are
organized and possess all licenses, permits and government approvals necessary for performance
of the work.
7. Proposal Terms
1.1 Prospective Firms’ Understanding of the Solicitation
Prospective contractors are responsible for understanding the solicitation in its entirety and
each of its elements and should make inquiries to ASI as necessary to ensure such
understanding. ASI reserves the right to disqualify any prospective vendor that it
determines, at its sole discretion, does not understand the solicitation or any of its elements.
Such disqualification shall be at no fault, cost, or liability whatsoever to ASI.
1.2 Information from ASI
All information provided by ASI in this solicitation is subject to change at any time. ASI
makes no certification as to the accuracy of any item and is not responsible or liable for any
use of or reliance on the information or for any claims asserted therefrom.
1.3 Communication
All communications related to the RFP must be in writing to the above-mentioned point of
contact. Verbal communication shall not be effective unless formally confirmed in writing by
the procurement official listed in a sealed envelope to our designated location in Lahore.

1.3.1 Formal Communications shall include, but are not limited to the following:
 Questions concerning this solicitation must be submitted in writing to the
contact person mentioned above.
 Errors and omissions in this solicitation, as well as enhancements.
Prospective firms should notify ASI of any discrepancies, errors, or omissions
that may exist within this solicitation. Prospective vendors should recommend
to ASI any enhancements to the work described in the solicitation which
might be in ASI’ best interests.
 Inquiries about technical interpretations must be directly asked from contact
person (Alexander Harris).

1.3.2 Addenda: ASI will make a good-faith effort to provide a written response to the
questions or requests for clarifications in the form of written responses or
addenda in accordance with the Schedule of Events.
1.3.3 Posting Online: Copy of this solicitation, will be available online at:
www.BrightSpyre.com.
1.4 Non-Disclosure Agreement
ASI reserves the right to require the prospective firms to enter into a non-disclosure agreement.
1.5 No Collusion
Collusion is strictly prohibited. Collusion is defined as an agreement or compact, written or
oral, between two or more parties with the goal of limiting fair and open competition by
deceiving, misleading, or defrauding a third party.
1.6 Companies Owned or Controlled by Government
The prospective vendor must disclose in writing with its Response if a government, its
agents, or agencies, have an ownership or managerial interest in the company. Failure to
disclose government ownership of managerial interest in the company will result in the
prospective contractor’s offer being removed from consideration.
1.7 Subcontracting
The prospective contractor must disclose in writing with its Response any subcontracting that
will take place under an award. Failure to disclose subcontracting relationships will result in
the prospective contractor’s offer being removed from consideration. (if permitted by the
solicitation)
1.8 Costs
The solicitation does not oblige ASI to pay for any costs, of any kind whatsoever, which

may be incurred by a prospective contractor/vendor or third parties, in connection with the
Response.
1.9 Intellectual Property
Prospective vendors may not use any intellectual property of ASI including, but not limited
to, all logos, trademarks, or trade names of ASI, at any time without the prior written
approval of ASI.
1.10 Prospective Contractors’ Responses
All accepted Responses shall become the property of ASI and will not be returned.
1.11 Partial Awarding
ASI reserves the right to accept all or part of the Response when awarding a contract.
1.12 No Liability
ASI reserves the right to accept or reject any Response or to stop the procurement process
at any time, without assigning any reason or liability. ASI shall not be liable to any
prospective contractor, person, or entity for any losses, expenses, costs, claims, or damages
of any kind.