The independent evaluation of the multibillion-dollar purchase of 28 CH-148 Cyclone helicopters to replace a 50-year-old fleet of Sea Kings, obtained by CBC News Network's Power & Politics, concludes the government can get the problem-plagued program back on track by negotiating with primary supplier Sikorsky to "re-scope" the project's structure, specifications and delivery approach.
"[The] project could be viable and operationally relevant with a new structure and governance model as described in our recommendations," reads the report from Hitachi Consulting.
A summary of the assessment, which was commissioned by Public Works, urges the government to "sacrifice less important requirements in order to deliver relevant capability" to the Royal Canadian Air Force.
It also recommends a review of "lessons learned" to determine if systemic issues exist that could be addressed in order to avoid future boondoggles with major capital acquisition investments.
Plagued by delays and penalties
The maritime helicopter replacement program has been plagued by cancellations, delays, lawsuits and penalties.
The Conservatives had blamed the previous Liberal government for the bumpy procurement process and cancellation of an earlier helicopter program, which cost more than $500 million.
In 2010, the government amended the contract requirements in a bid to speed up delivery, but the report concludes the program was flawed right from the beginning.
"A fundamental problem existed at the outset of this project — this set the stage for significant misalignment," reads the key finding.
The report says the government believed it was buying an "off-the-shelf" product by Sikorsky — a conclusion also drawn in a 2010 auditor general's report. Yet the project should have been treated as a development program because the "state-of-the-art" aircraft incorporates advanced technology and an in-service support capability "that is likely unsurpassed in the world today," according to the report.
While the fleet was to begin delivery in late 2008, so far only four of the Cyclone helicopters have been delivered — and only on an "interim" basis. The government won't formally accept them because they don't fully meet the specifications.
Last year, then defence minister Peter MacKay cited the Sikorsky deal as an example of how procurement can "go badly wrong."
"This is the worst procurement in the history of Canada, including the $500-million cancellation costs that are attached to the maritime helicopter program and then the costs of the further maintenance to fly the 50-year old helicopters," he said at the time. "They're going to go right out of aviation service and into the museum in Ottawa. And that's not a joke."
Among the report’s recommendations to turn the project around:- The government should act to achieve program viability with a new form of governance within 45-90 days based on the "urgency of this situation as it has been communicated."
- A new model must be more appropriate to a complex development program based on practices that have been established and proven for such a program.
- Sikorsky must respond to priorities and adjust the technical approach and program plan and enter into a "defined trade space."
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