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In Case You Missed It

How STAARS Fell on Alabama

Susan Britt



By Bill Britt and Susan Britt
Alabama Political Reporter

The revelation first reported by the Alabama Political Reporter, that a $47-million-dollar software package known as STAARS caused a meltdown in the State’s ability to pay its bills in a timely fashion, or properly process inter-agency payments, leaving hundreds of millions of dollars in a software limbo, has raised questions about how the contract was awarded.

Acting State Finance Director Bill Newton, and his Chief Legal counsel, Richard Cater, have stated STAARS, as supplied by the Canadian software giant,, is simply an upgrade of software purchased in 1982. Therefore, they did not have to put it out for bid.

Cater compared STAARS to Microsoft’s operating system upgrade from Windows 7 to Windows 8.

The original 1982 contract, signed by then Gov. Fob James, was for a Local Government Financial System (LGFS) known as “The Package” provided by American Management Systems Incorporated (AMS). AMS was acquired by CGI in 2004.


The COBOL-based software license contract was for 15 years, and would expire in 1997, if not renewed. The maintenance agreement was for 12 months with a yearly renewal clause. The contract table of contents shows the State of Alabama signed renewal amendments to the original 1982 maintenance contract until 1994. State records show no amendments were signed for the next 17 years.



In November 2012, Amendment 11 was signed by Assistant Finance Director Rex McDowell “extending” the license and maintenance agreement for 15 years, until September 30, 2027.

In the State’s presentation of the STAARS program they say, the software (LGFS), “is no longer maintained or supported by the vendor…[].


Amendment 12 signed on January 13, 2013, by then Finance Director Marquita Davis, altered the original language of the 1982 license and maintenance agreement, to allow the State to purchase a suite of CGI software, as well as bundled software solutions from other companies.


Fifteen days later, Gov. Robert Bentley signed the Statement of Work #1(SOW1) that outlined the implementation of STAARS at the State’s Department of Medicaid. No amendment was made to the formal contract for this portion.


Amendment 13 accompanied by Statement of Work #2 was signed by Bentley on September 2013, authorizing the software implementation agency wide.


The original 1982 contract was awarded to AMS/CGI, under a Invitation To Bid (ITB).

Gov. Bob Riley’s legal advisors instructed the committee that eventually approved the STAARS program, that it must follow the same ITB procedures.

During the Gov. Riley administration, the SMART Business Systems Steering committee was selected to carry out the purchase and implementation of a statewide ERP solution. ERP is short for, Enterprise Resource Planning.

A 2008 memo from then State Comptroller Robert L. Childree, Chair of the SMART Business Systems Committee under Gov. Riley, and Finance Director Jim Main, outlined the terms under which the committee was directed to purchase the ERP solution: “The Steering Committee has been advised by legal counsel, that the law in Alabama requires the use of a competitive bid process for the procurement of software when acquiring an ‘off-the-shelf’ product. Since the stated goal for the SMART Business Systems ERP project is the use of a complete off-the-shelf solution, it has become apparent to the Steering Committee that the project must change our approach to accommodate the more complex development of very specific and very detailed specifications before the release of an Invitation To Bid (ITB).”


The goal of the committee was to purchase a “complete off-the-shelf solution,” which Newton and Carter have confirmed, STAARS is an off-the-shelf program.

According to State statute, purchases subject to competitive bidding must be made through the release of an Invitation to Bid (ITB) and the contract or purchase order awarded to the lowest responsible bidder meeting all of the mandatory specifications stated in the ITB.

Cater said the Department of Finance discovered it could purchase STAARS under the existing 1982 contract stating, if it were put out for bid, it would have cost the State over a hundred million dollars.

According to the STAARS presentation documentation, the State purchased CGI Advantage a registered trade-mark product of


A STAARS Presentation to Alabama Association of Regulatory Agencies in September 2014, explains why the State was, “implementing a new system,” stating “The State’s current mainframe Central Accounting System was implemented over 25 years ago, [the] Mainframe software platform is no longer maintained or supported by the vendor…[]. [The] new system replaces state agency systems with one integrated state of the art [sic] software package.”


The Department of Finance claims CGI Advantage is an upgrade signed under a continuing maintenance contract from 1982.

Unlike a standard upgrade, CGI Powerpoint presentations show that the legacy data would be migrated to a “data warehouse” and not into the new system.


The contract executed in 1982 shows yearly signed “amendments” until 1994. Newton and Cater have stated this was a continuing “maintenance” contract.

In 1994, the signing of the contract’s renewal abruptly ended.

The next amendment was signed 17 years later, by Assistant Finance Director Rex McDowell in November 2012, two months before the State signed an agreement for $1.6 million to implement a STAARS’ pilot program at the State offices of Medicaid.

None of these contracts were brought before the Joint-House Contract Review Committee.

A 2002, Attorney General’s Opinion issued by then AG Bill Pryor found, that software updates have to be bid unless it is custom software and must come before contract review.

“This section expressly provides that any contract, including a contract such as the one being discussed here, which is made without its submission to the Committee, ‘shall be void ab initio,”’ Attorney General Bill Pryor Opinion, December 10, 2002.


Newton and Cater have repeatedly stated STAARS is not custom software, this is also reflected in STAARS documentation.

The amendment to the contract in 1994 was not given a number as the others, it should have been labeled Amendment 10. The next Amendment signed by McDowell in 2012, is labeled Amendment 11.

Amendment 12 was signed by then Finance Director Marquita Davis on January 15, 2013.  This Amendment alters the language in the maintenance agreement to allow the State to contract to purchase software.

The next Amendment 13, signed by Gov. Robert Bentley on September 30, 2013, outlining the statement of work and authorizing the implementation of STAARS agency-wide.

The public policy in Alabama as expressed in its Constitution and statutes regarding the expenditure of public funds for goods and services is that everything must be purchased through a competitive bidding process unless expressly exempted by law.

This policy arises from the Constitution in Title 41, Chapter 16, Article II, Code of Alabama. The purpose is not to get the lowest possible price, but to have an open and competitive process that allows any qualified vendor to compete for the business; and, to fight fraud, corruption and political favoritism.

If it were found the STAARS’ contract required a competitive bid, then under Section 41-16-21(c), the contract would be void.

“Void” means there is not and never has been legal authority for the State Comptroller to issue a State warrant to pay for goods or services under such a contract. In such instances, the funds should be recoverable by the Attorney General.

Everyone doing business with the State is presumed to know the laws governing purchasing.

Statements made by Newton and Cater, along with documentation on STAARS, and the Amendments, when viewed along side State statutes governing purchasing such software, presents a trail of yet unanswered questions. Primarily, was the contract entered into in violation of the competitive bidding law, Section 41-16-20, et seq., Code of Alabama 1975; or was it purchased under an exception to that law?



In Case You Missed It

House passes General Fund Budget

Brandon Moseley



By Brandon Moseley
Alabama Political Reporter

The Alabama House of Representatives passed the state General Fund Budget on Tuesday.

The General Fund Budget for the 2019 fiscal year is Senate Bill 178. It is sponsored by Sen. Trip Pittman, R-Montrose. State Rep. Steve Clouse, R-Ozark, carried the budget on the House floor. Clouse chairs the House Ways and Means General Fund Committee.

Clouse said, “Last year we monetized the BP settlement money and held over $97 million to this year.”

Clouse said that the state is still trying to come up with a solution to the federal lawsuit over the state prisons. The Governor’s Office has made some progress after she took over from Gov. Robert Bentley. The supplemental we just passed added $30 million to prisons.

The budget adds $50 million to the Department of Corrections.

Clouse said that the budget increased the money for prisons by $55,680,000 and includes $4.8 million to buy the privately-owned prison facility in Perry County.

Clouse said that the budget raises funding for the judicial system and raises the appropriation for the Forensic Sciences to $11.7 million.


The House passed a committee substitute so the Senate is either going to have to concur with the changes made by the House or a conference committee will have to be appointed. Clouse told reporters that he hoped that it did not have to go to conference.

Clouse said that the budget had added $860,000 to hire more Juvenile Probation Officers. After talking to officials with the court system that was cut in half in the amendment. The amendment also includes some wording the arbiters in the court lawsuit think we need.

The state General Fund Budget, SB178, passed 98-1.

Both budgets have now passed the Alabama House of Representatives.

The 2019 fiscal year begins on Oct. 1, 2018.

In addition to the SGF, the House also passed a supplemental appropriation for the current 2018 budget year. SB175 is also sponsored by Pittman and was carried by Clouse on the floor of the House.

SB175 includes $30 million in additional 2018 money for the Department of Corrections. The Departmental Emergency Fund, the Examiners of Public Accounts, the Insurance Department and Forensic Sciences received additional money.

Clouse said, “We knew dealing with the federal lawsuit was going to be expensive. We are adding $80 million to the Department of Corrections.”

State Representative Johnny Mack Morrow, R-Red Bay, said that state Department of Forensics was cut from $14 million to $9 million. “Why are we adding money for DA and courts if we don’t have money for forensics to provide evidence? if there is any agency in law enforcement or the court system that should be funded it is Forensics.”

The supplemental 2018 appropriation passed 80 to 1.

The House also passed SB203. It was sponsored by Pittman and was carried in the House by State Rep. Ken Johnson, R-Moulton. It raises securities and registration fees for agents and investment advisors. It increases the filing fees for certain management investment companies. Johnson said that those fees had not been adjusted since 2009.

The House also passed SB176, which is an annual appropriation for the Coalition Against Domestic Violence. The bill requires that the agency have an operations plan, audited financial statement, and quarterly and end of year reports. SB176 is sponsored by Pittman and was carried on the House floor by State Rep. Elaine Beech, D-Chatham.

The House passed Senate Bill 185 which gives state employees a cost of living increase in the 2019 budget beginning on October 1. It was sponsored by Sen. Clyde Chambliss, R-Prattville and was being carried on the House floor by state Rep. Dimitri Polizos, R-Montgomery.

Polizos said that this was the first raise for non-education state employees in nine years. It is a 3 percent raise.

SB185 passed 101-0.

Senate Bill 215 gives retired state employees a one time bonus check. SB215 is sponsored by Senator Gerald Dial, R-Lineville, and was carried on the House floor by state Rep. Kerry Rich, R-Guntersville.

Rich said that retired employees will get a bonus $1  for every month that they worked for the state. For employees who retired with 25 years of service that will be a $300 one time bonus. A 20-year retiree would get $240 and a 35-year employee would get $420.

SB215 passed the House 87-0.

The House passed Senate Bill 231, which is the appropriation bill increase amount to the Emergency Forest Fire and Insect and Disease Fund. SB231 is sponsored by Sen. Steve Livingston, R-Scottsboro, and was carried on the House floor by state Rep. Kyle South, R-Fayette.

State Rep. Elaine Beech, D-Chathom, said, “Thank you for bringing this bill my district is full of trees and you never know when a forest fire will hit.

SB231 passed 87-2.

The state of Alabama is unique among the states in that most of the money is earmarked for specific purposes allowing the Legislature little year-to-year flexibility in moving funds around.

The SGF includes appropriations for the Alabama Medicaid Agency, the courts, the Alabama Law Enforcement Agency, the Alabama Department of Corrections, mental health, and most state agencies that are no education related. The Alabama Department of Transportation gets their funding mostly from state fuel taxes.

The Legislature also gives ALEA a portion of the gas taxes. K-12 education, the two year college system, and all the universities get their state support from the education trust fund (ETF) budget. There are also billions of dollars in revenue that are earmarked for a variety of purposes that does not show up in the SGF or ETF budgets.

Examples of that include the Public Service Commission, which collects utility taxes from the industries that it regulates. The PSC is supported entirely by its own revenue streams and contributes $13 million to the SGF. The Secretary of State’s Office is entirely funded by its corporate filing and other fees and gets no SGF appropriation.

Clouse warned reporters that part of the reason this budget had so much money was due to the BP oil spill settlement that provided money for the 2018 budget and $97 million for the 2019 budget. Clouse said they elected to make a $13 million repayment to the Alabama Trust fund that was not due until 2020 but that is all that was held over for 2020.

Clouse predicted that the Legislature will have to make some hard decisions about revenue in next year’s session.


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In Case You Missed It

Day Care bill delayed for second time on Senate floor, may be back Thursday

Sam Mattison



By Samuel Mattison
Alabama Political Reporter

The day care bill, which would license certain day care centers in Alabama, was once again delayed on the state Senate floor after one lawmaker requested more information.

Its brief appearance Tuesday ended with state Sen. Gerald Dial, R-Lineville, saying a compromise had not yet been worked out with the bill’s detractors.

Alabama’s Senate has been hesitant to act on the legislation because of complaints of state Sen. Shay Shelnutt, R-Trussville, who has been an opponent of the bill since its introduction last year. The bill’s delay on Tuesday marks the second time its been taken off the Senate’s agenda.

The bill has had a rocky time in this year’s session, but the bill’s sponsor state Rep. Pebblin Warren, D-Tuskegee, said she is still confident about its passage out of the Legislature.

Warren, D-Tuskegee, filed the bill this session with the support of influential lawmakers including Gov. Kay Ivey, who told reporters last year that she though all day cares should be licensed.

Mainly sparked by the death of 5-year-old boy in the care of a unlicensed day care worker, the bill had great momentum coming into this year’ session.

Despite the growing support from lawmakers, Religious groups had concerns that the bill would increase state-sponsored reach into religious day cares in churches and non-profit groups.


Spearheading the dissenters was Alabama Citizens Action Program, a conservative religious-based PAC.

Warren, proponents, and ALCAP announced a compromise to the bill while it was still in the Alabama House.

Announced by ALCAP originally, the new bill was a weaker version in that it did not require that all day cares in the state be regulated. Instead, religious-based day cares would only need to be registered if they received federal funds. At a Senate committee meeting in February, Warren said a similar requirement was about to come from federal law in Congress.

The bill moved through the House in a overwhelming vote in favor of the proposal and passed unanimously out of a Senate committee a few weeks ago.

Warren, speaking to reporters after its passage from the House, said she was unsure if the bill would encounter resistance in the upper chamber.

It was the Senate that killed the daycare bill last year amid a cramped last day where senators took the bill off the floor. The bill may face similar complications this year, as lawmakers seem to be preparing to adjourn within a few weeks.

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In Case You Missed It

Fantasy sports bill fails on Senate floor

Sam Mattison



By Samuel Mattison
Alabama Political Reporter

Would-be Fantasy Sports players in Alabama will have to wait to legally play in the state following a Senate vote on Tuesday.

The Alabama Senate decisively killed a bill to exempt fantasy sports from the state’s prohibition on gambling.

Not even entertaining a debate on the Senate floor, the proposal was killed during a vote for the Budget Isolation Resolution, which is usually a formality vote preluding a debate.

Fantasy sports are contests where participants select players from real teams to compete on fantasy teams using the real-world players’ stats.

Since 2016, the practice has been illegal in Alabama following a legal decision by the Attorney General’s Office that categorized it as gambling.

The bill’s sponsor, state Sen. Paul Sanford, R-Huntsville, predicted the bill’s failure during a committee meeting two weeks ago, where the bill passed unanimously.

Sen. Paul Sanford speaks to reporters after a Senate Committee meeting on Feb. 28, 2018. (Samuel Mattison/APR)

Speaking to reporter’s after the committee meeting, Sanford said the decision to file the bill was mainly a philosophical belief that the practice shouldn’t be illegal.


Sanford, a fantasy sports player before its ban, said that fantasy sports are a way to bring people closer together and not a means to win money. The Huntsville senator is not seeking re-election.

The bill’s failure in the Senate follows its trajectory last year too. A similar version of the bill, also sponsored by Sanford, failed in the Senate during the final days of the 2017 Legislative Session.

Since Sanford is retiring, it is unclear if the bill will even come back next session, or if it will even have a Senate sponsor.

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In Case You Missed It

House OKs bill to clarify consulting contracts by state legislators

Brandon Moseley



By Brandon Moseley
Alabama Political Reporter

Tuesday, the Alabama House of Representatives passed a bill to try to clarify how legislators accept consulting contracts under Alabama’s 2010 ethics law. Some pundits have suggested that House Bill 387 is actually designed to weaken the existing ethics law.

Sponsor state Rep. Rich Wingo, R-Tuscaloosa, argues that the legislation is merely a clarification and is intended to prevent legislators from inadvertently crossing the line into illegality.

Wingo said that his bill would require legislators to notify the Alabama Ethics Commission that they have entered into a consulting agreement in an area outside of their normal scope of work.

State Rep. Paul Beckman, R-Prattville, said, “I have never understood why members of this body were allowed to take contracts as consultants or counselors.”

Wingo said, “Never do I use the word counselor in my bill; it is consulting.”

Beckman asked, “Are we going to be getting into an area where  every time we turn around we create a bureaucratic nightmare where we have to go get an opinion. These opinions whether it is orally or written don’t hold up in a court of law.” Beckman said, “We are serving the people here but we get this admonition that we can still be a consultant if we get an opinion.”

Wingo said, “This does not apply to professions where a member is currently licensed.”


Beckman said, “I would like to see more opinions coming out of the Ethics Commission. Right now we have the Ethics Commission competing with the Attorney General’s office over who has more authority.”

State Rep. John Rogers, D-Birmingham, said,”This happened to a friend of mine. He just got out of prison. He was a state senator and had a written letter from the Ethics Commission which his lawyer read at trial and the jury convicted him anyway.”

Rogers never named his friend, but reporters think he was talking about former state Sen. Edward Browning ‘E. B.’ McClain who spent over 22 years in the legislature until he was convicted on 47 counts of conspiracy, mail fraud, bribery, and money laundry in 2009.

A federal jury found that McClain and the Rev. Samuel Pettagrue were guilty in a scheme where McClain would secure public funds for Pettagrue’s community programs and then receive a kickback once the funds were in hand. McClain was sentenced to five years and ten months in prison. McClain was not prosecuted under the Alabama ethics law as the state has a much weaker ethics statute then. The current ethics law was passed in 2010.

Rogers said, “If they offer me a consulting contract for a field like aerospace engineering that I know nothing about they are trying to pay me off. If you can already be a consultant for something you know about why would you seek a consulting contract for something you don’t know about.

Rogers this is how they can pay you off for your vote.”

State Rep. Artis “A.J.” McCampbell said, “I don’t like making changes to things like this because we get into things called unintended consequences.”

McCampbell was reading from the bill and Wingo said, “You are reading from the original version it has completely changed.” “We worked tirelessly on this bill with the Ethics Commission this is not a fly by night bill.”

“If a member of the legislature enters into a contract to do a consulting contract outside of their normal field of work this bill requires that they consult with the Ethics Commission first,” Wingo said. “It is up to the member to notify the Ethics Commission not to the company or person offering them the money.”

State Representative Pebblin Warren, D-Tuskegee, said, “Everybody but legislators are allowed to do contract work up to $30,000.”

Rep. Wingo said, “This is not intended to be a roadblock.”

State Representative Arnold Mooney, R-Indian Springs, said, “The whole purpose of this is not to prevent members from doing work in your field.” “What you are doing is offering to protect me.”

State Representative John Knight, D-Montgomery, asked Wingo what the Alabama Attorney General said about this legislation.

Wingo replied, “I have not contacted the Attorney General.”

Knight responded, “Something from the Ethics Commission does not carry a lot of protection from the Attorney General. We have seen that in the past. I think the Attorney General and the Ethics Commission should be in agreement in the working on this.”

Wingo answered, “Maybe this is a first step.”

Rep. Laura Hall, D-Huntsville, asked, “Do we have anybody doing work outside of their regular scope of work?”

Wingo answered, “Yes I think so.”

Wingo said, “If we had had this bill four or five years ago maybe we could have been spared the embarrassment that this body experienced with the former Speaker.”

Wingo was referring to former Speaker of the House Mike Hubbard who was convicted of 12 counts of felony ethics violations in June 2016. Ironically, Hubbard is largely responsible for creating the ethics law that he was found guilty of violating 11 times in his relentless pursuit of outside contracts and personal wealth.

Unlike McClain, however, Hubbard has not yet served any of this sentence.

House Bill 387 passed 67-0 with 26 legislators abstaining.

The bill now moves to the Senate for its consideration.

(Original reporting by the Alabama Media Group’s Lisa Osborn in 2009 was consulted in this report.)

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