IE. They need somebody that knows how to write a request for proposal, and don't have such a person. Add that to the list of things CGL needs for this to happen, and is currently incapable of doing/providing.
Well it is a more complex problem than that it seems. It is easy to write a RFP paper, I know I've actually had to write a few, and CGL has plenty of good writers that should have no trouble doing one, if not I'm more than happy to offer my services for free, baring free the absolute minimum to keep everything above board and cause as few problems as possible.
Where the hang up seems to really be is that no one has even really decided what the end goals need to be beyond "complete". The fans have put forward far more criteria than CGL has and that is not good since really it should only take a few minutes,barring arguments and other bickering, to put together something that will get real attention/effort.
Considering that they asked for completed software I don't think this is an issue. The real issue is no one probably wants to do the work for less than peanuts considering how much would have to go into said software.
The final terms would have to be worked out between CGL and whoever does decide to even submit a program. Though I suspect that there are a fair number of companies/coders who do look at CGL and Battletech in particular as no where near big enough to offer a sufficient payout, especially with how slipshod the entire process has been. As such you are probably fairly close to the truth.
It's my understanding that when they asked for such software it was for in-house use by Catalyst. That may fall under a different license from Microsoft than a commercially available program for fans to use.
It would not hurt for CGL to clarify such matters.