4.9 The assumptions underlying the way the Bureau would operate were treated by the Implementation Team as "givens" and were not tested or questioned in detail, and many were overset by events (Figure 12). Agency staff were constrained partly by legislation and by legal advice. Operating outside its powers was not possible for the Bureau, but where changes to legislation were identified as desirable they were not easy to put in place. Throughout the tendering process, Capita considered that there were clear boundaries to their involvement in the project, and hence that they were limited in their ability to test the Agency's assumptions.