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Ginny Wydler, Senior Associate, Booz Allen Hamilton

Paul Tetrault, Senior Associate, Booz Allen Hamilton

Doug Zwiselsberger, Senior Associate, Booz Allen Hamilton

Acquisition Strategy: Bridging the

Gap Between Requirements and

Source Selection

#302

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Agenda

• Introductions

• Current Acquisition Environment/Challenges

• Case Studies

– #1: International Acquisition – Abu Dhabi

– #2: Commercial Client – IT Outsourcing

– #3: Federal Acquisition – DoD Military System

• Summation and Best Practices

• Questions

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Overview: Acquisition Strategies

• Acquisition Environment

– Major systems acquisitions have been struggling with strategies that ensure programs meet contracting goals and performance results

– Key activities and events happen between the time that the requirement is defined, and the time of contract award to industry

– Many organizations have structured procurement processes and products in place, but the acquisition and contracting strategy can still be difficult to develop and implement

– Often there is a gap between what the books say should be done and the actual practice. This presentation will concentrate on innovative approaches that can close that gap, and it will offer some solutions to improve the acquisition strategy and contracting process and practice

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Overview: Acquisition Strategies – “Ideal World”

• Many factors play into a successful acquisition

– Achieving milestone approvals, with a critical eye toward program health metrics and setting realistic contracting schedules

– Developing a contracting strategy that identifies dependencies on a critical path and engages industry to foster partnerships

– Ensuring the capabilities requirements, alternatives analysis, independent cost estimates and market research are reflected in the contracting strategy and the resulting source selection

– Implementing Program Management Office (PMO) governance to ensure stakeholder involvement, and effective use of integrated product and process teams and collaboration of acquisition activities

– Balancing risk and reward through Risk Management Strategies that recognize the use of executable contracting methods

– Quantitative Tools that can support performance management

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Overview: Acquisition Strategies - Issues

• Cost overruns

• Requirements creep

• Performance Based acquisitions

• Outside pressures

• Teaming

• Risk Management

�Government spending for services has increased from $235B in 2001 to $415B in 2006 and continues to climb, according to GAO�The Pentagon faces a potential implosion with a $650-750B/yr appetite and but only $500B/yr

in funding�New weapons programs have doubled in cost and time to deliver

�Department of Homeland Security faces Spiraling War on Terror costs

�Systems, such as US-VISIT, have seen extensive delays and cost overruns

�Hostile budgetary climate is created among the Federal Agencies of Social Security, Medicare and DHS GWOT

�Economic Recession has hit hard with Defense manufacturing, causing costs to go up

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The cost of major acquisitions has exploded

LCS Cumulative Procurement Cost-Growth

(FY2008-2016)

0

5000

10000

15000

20000

25000

2008 2010 2012 2014 2016

Fiscal Year

Co

st

(mil

lio

ns

of

200

8 U

SD

)

Original cos t-e stimate

Revis ed cost-estimate

The Navy’s Littoral Combat Ship Program

The Air Force F-22 program

Army’s Future Combat Systems (FCS) Program

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Program/Contract Strategy and Planning• Program/Project Lifecycle Planning and Management

• Earned Value Management Strategies

• Cost/Schedule Baseline Development

• Risk Management Planning

A CB

Materiel

Solution

Analysis

Technology

Development

Production and Deployment

Engineering & Manufacturing Development

Operations and Support

• Stakeholder Relationship Management

• Contract Strategy Development

• Source Selection Support

• Policy/Legislative Analysis

• Implementation of Performance Based Contracting

ExecutionInitiation Planning Close out

DoDModel

Civilian Agency Model

Commercial

Procurement

Model

Planning Solicitation Evaluation Award Post Award

Contract Formation Contract Management

The Acquisition Process is complicated

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The most recent 2009 Defense Acquisition Reform Bill

focuses on problems with requirements through delivery

“Report after report has indicated that the key to successful acquisition programs is getting things right from the start with sound systems engineering, cost-estimating, and developmental testing early in the program cycle. Over the last twenty years, however, DOD has eliminated acquisition organizations and cut the workforce responsible for taking these actions, and has tried to “reform” the acquisition process by taking shortcuts around

early program phases in which these actions should be taken. The result has been excessive cost growth in weapon systems and excessive delays in fielding those systems.” - Senator Levin’s office, Feb 24, 2009

Section 204. Nunn-McCurdy Breaches. Since the beginning of 2006, nearly half of DOD’s 95 Major Defense Acquisition Programs (MDAPs) have experienced critical cost growth, as defined in the Nunn-McCurdy provision, as amended. Overall, these 95 MDAPs have exceeded their research and development budgets by an average of 40 percent, seen their acquisition costs grow by an average of 26percent, and experienced an average schedule delay of almost two years.

Section 201. Trade-offs of Cost,

Schedule and Performance. The January 2006 report of the Defense Acquisition Performance Assessment Project (DAPA) concluded that “the budget, acquisition and requirements

processes [of the Department of

Defense] are not connected

organizationally at any levelbelow the Deputy Secretary of Defense.”

Section 101. Systems Engineering Capabilities. The Defense Science Board Task Force on Developmental Test and Evaluation reported in May 2008 that “the single most important step necessary” to address high rates of failure on defense acquisition programs is “a viable systems engineering strategy from the beginning.”

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Case Study #1 - Abu Dhabi Public Gardens Outsourcing Review

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Background

• Abu Dhabi spends upwards of $300M per year in maintaining and improving its public garden infrastructure including parks, forests and roadside

plantings with underlying water distribution.

• Work was outsourced in 2006

• 20,000 workers were affected

• 28 new contracts were awarded

• 5 oversight contracts used

• We assessed this arrangement

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The outsourcing met its a goal of transferring Public

Garden O&M from the Government to private companies

but fell short in a number of other objectives

Outsourcing Goals

� Reduce Municipal headcount through a partnership with the private sector

� Beautify Abu Dhabi through increased professional expertise

� Save money

� Strengthen management focus

� Prevent service interruption and corresponding quality deterioration

Results Achieved

� Municipal headcount reduced to target

� After 2 years, no tangible quality improvements

� Saving not clearly realized

� Municipality transition to oversight and management role in progress

� O&M function transferred from public to private sector without interruption of service or deterioration of quality

Outsourcing Goals and Early Results

12Conf idential

We reviewed a number of key issues as part of our

assessment

Scope of contract review

� Interview stakeholders (contractors, consultants, municipality officials and managers)

� Review contractor and consultant contracts

� Analyze costs

� Compare current contractual arrangements to international best practice outsourcing contractual arrangements

� Recommend improvements

Key issues

� Is the Municipality paying a fair price?

� Has service quality improved?

� Are the contractual arrangements working and producing the desired outcomes?

� Can the contractual arrangements be improved?

� Should the Municipality exercise the option years of the current contracts (e.g., extend the contracts with current contractors)?

� Are there areas where additional cost savings can be realized?

� Are there opportunities to better align incentives to improve performance?

Key Issues and Assignment Scope

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An “Ideal" Outsourcing Contract should be specific,

accurate, clear, and solve the customers needs

Key Criteria

Detailed Description of Required Services

Defined Roles and Responsibilities

Open Communications

Effective Performance and Reporting

Fair Prices and Payments

Appropriate Performance Incentives

Flexibility to Adapt to Changing Conditions

Special Provisions for Unique Requirements

Clear Exit Strategy

Conf idential

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We found the new O&M contracts were awarded

without first defining the requirements accurately,

leading to later performance issues

Findings on Contracting Process

� Emphasis was on meeting prescribed award dates (6 month period)

� RFPs were prepared and process run by 5 separate consultant firms

� Little standardization of RFPs across 5 consultants� Inadequate time to define actual requirements for O&M, condition

of assets and limited site surveys were employed� RFPs from 4 consultants lacked adequate detail on size and scope

of required maintenance� Contractors had to bid FFP, little allowance for correction of scope

issues

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Unit prices varied widely across the contracts with no

clear justification

Contract #

Dispersion in Annual Maintenance Costs By Consultant Zone – Hedges (m)

(In AED)

10

1

10

2

10

4

20

6

20

3

20

1

20

5

20

2

20

4

Contractor A Contractor B

9.3

5

9.3

5

16

.38

4.9

7.7

11

.5

17

.33

22

19

.2

Large Cost Components

Access Roads6%

Provisional Sums

3%

Irrigation6%

Landscape64%

Stormwater3%

Other19%

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Assessing consultant performance was difficult

because there are no relevant scopes of work or

performance metrics in the contracts

Current Performance Management

� Work is not specifically defined or tied to specific requirements

� Payments are made for labor hours expended in performing general tasks

� No up-to-date contract or statement of work

� No performance metrics

� No clear municipality oversight role for

consultant contracts

� No centralized management information is

maintained for consultant performance

Future Performance Management

� Efforts aligned to specific statement of work and performance metrics

� Fixed pricing utilized

� Tied to incentives (positive and negative) for performance against relevant key

performance indicators of quality and end results

� Clearly assigned Municipality oversight role and resources for managing the consultant

contracts

Management of “Contract Manager” Contracts

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We proposed a migration to an active contract

management to create the foundation for successG

Minimal Management Basic Management Best Practice Management

� Service levels (KPIs) not defined

� No performance tracking

� Service provider handling

processes are ad hoc, with obscure variations and multiple

touch points

� Service provider interaction and integration inconsistent

� Contract terms viewed as fixed

� Relationship not defined

� Transactional service levels defined by limited sources

� Limited performance target

monitoring

� Some standard processes defined

� Some contract terms tied to

targets

� Service provider points of contact defined

� Service provider relationships

defined

� Meaningful service levels defined by stakeholders

� Performance actively monitored

against results and benchmarks

� Central service provider management group

standardizes processes and policies, & manage contracts

� Contracts structured to

coordinate behavior amongst service providers; payment terms tied to integrated service

delivery

� Differentiated relationships defined contractually for long-

term strategic partners and preferred service providers

Service Provider Management Capability Levels

Should Have Best to HaveMust Have

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Contracts should be actively managed, with

transparency and alignment to end results

Solution Levers

� Smooth contract and service operations — fewer issues and faster resolution

� Clearly defined roles and points of contact

� Reduced management complexity

� Open communication between service provider and the client

� Incentive for continuous price and quality improvement

� Trusting partner relationships

� Satisfied customers

Outsourcing Impacts

� Key Performance Indicators (KPIs) enforced; problems caught and corrected early

� Management has visibility into duplicate services, gaps, etcP — can optimize service provider operating model

Management Processes

Establish robust set of processes, beyond � Establish robust set of processes, beyond just contract administration — Including: – Service provider relationship

management– Performance management and reporting

– Communications

Management Tools

� Tools support active service provider management – Performance monitoring and reporting

– Contract management– Project management

Incentives & Accountability

� Structure / restructure contract metrics and incentives with mutually beneficial terms

� Define KPIs that directly support business

priorities

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Public Gardens outsourcing effectiveness can be improved

by focusing on consultants, contractors and governanceSummary Recommendations

Consultants/Contract

ManagersO&M Contractors

� Define and standardize the Statement of Work and performance metrics

� Develop new contracting strategy and bidding

documents to re-compete Abu Dhabi Municipality

(target award October 2008)

� Develop new contracting strategy and bidding documents to re-compete

Western Region (target award March 2009)

� Execute strategies and award new contracts for AD

and WR

� Improve current contracts (e.g., rationalize/remove minimum resource

requirements)

� Finalize KPIs (establish, link

to incentives and incorporate in contracts)

� Develop new contracting strategy and bidding

documents including draft performance-based contract

� Execute strategy and award new contracts

Governance

� Define the roles, responsibilities and authorities of the

Municipality staff to reduce ambiguity and overlap vis a

vis Consultants/Contract Managers

� Provide project and contract management training and coaching for Municipality

managers

� Improve priority business

processes (e.g., payment, work orders, prioritization of

new works and new beautification investments)

� Strengthen conflict of interest rules and enforcement mechanisms

Conf idential

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Summary

Conf idential

• Recommendations were made last summer

• The Municipality has taken action to re- compete the first consultant contract and embarked on a project to improve its contract management process

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Case Study #2 – Global Multi-Industry Manufacturing Company

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Case Study #2 - Global Multi-Industry Manufacturing

Company Overview

• After 10 years obtaining information technology support from the same vendor, the client faced the several challenges:

– Costs associated with each component of their IT infrastructure were not available or enmeshed with other costs

– An inventory or IT assets was not available to support the RFP/Bid process

– Software license information and data rights were not available to ensure license transfer or re-procurement

– A complete set of contracts or service agreements was not available to enable an understanding of what needed to be outsourced

The client had an annual IT expenditure valued at exceeding $3.0 billion per yearP

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Case Study #2: Approach

• To execute this project several workstreams were stood up to execute a unique aspect of this project:

– Request for Information (RFI)

– RFP Segmentation

– Purchasing Transaction Re-sourcing

– RFP Bid Management

– RFP Data Collection

– Collect Current Costs

– Supplier Education

– Software Access Rights

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Case Study #2: Approach (cont’d)

• Request for Information (RFI):

– Developed a high-level RFI to capture their thoughts and comments on pending competition

• RFP Segmentation:

– This workstream analyzed the clients IT requirements and categorize them into logical segments that can be packaged into individual request for proposals

• Purchasing Transaction Re-sourcing:

– This workstream isolated items that are routinely purchased in more of a commodity manner and examine mechanisms to standardize the process

• RFP Bid Management:

– Oversaw the acquisition process, developing processes for releasing RFPs, evaluating RFPs, awarding contracts and managing contracts.

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Case Study #2: Approach (cont’d)

• RFP Data Collection:

– Responsible for identifying the data and information required for each RFP to ensure that potential vendors had the information they needed to develop competitive proposals.

• Collect Current Costs:

– Responsible for capturing and segmenting IT expenditures

• Supplier Education:

– Responsible for educating the potential vendors about the outsourcing process and timelines.

• Software Access Rights:

– Responsible for working to ensure access to all of its mission critical software remained available to the client

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Case Study #2: Outcomes

• Upon completion of this assignment the following outcomes had been achieved:

– Executed the RFP process in a phased manner to allow for maximum competition

– Implemented a new standardization process the required vendors to adhere to a common set of standards

– Terms and Conditions that were advantageous to both parties –“made whole”

– Reduced overall IT costs by hundreds of millions of dollars

– Effectively transitioned from a single vendor environment to a multi-vendor environment

– Improved performance against agreed to Service Level Agreements

– Instituted a process for managing multiple vendors in a competitive environment

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Cast Study #2: Lessons Learned

• Start early

• Leverage outsourcing best practices and lessons learned

• Communicate early and often (transparency) and educate the vendor base

• Use of rigorous “stage gate” or milestones keeps the program specific to the mission and on schedule

• Define stated outcomes and align RFP process to achieving those outcomes

• Develop RFPs that you can manage from a performance, oversight, funding and execution perspective

• Never lose control over data, licenses and equipment that is central to your business

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Case Study #3 –Military System Acquisition

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Acquisition Strategies – Case Studies #3 Military

System Acquisition

• A Military Department has a requirement to field a major IT System

– Major Acquisition, $Multi-Million Value

– Major Milestone Decision for Production

– Proven Technology, with integration challenges

– “Traditional” Source Selection Process

– Competitive environment for Turnkey hardware, software, sustainment services

– DoD 5000 Process with Source Selection Authority

– Best Value analysis with technical and cost trade offs

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The Acquisition involved a Complex Set of Factors

for Source Selection Decision Making

• Market Analysis to Determine Competitive Landscape

• Determining Requirements Over the Life Cycle

• Understanding Requirements for Integration with other Equipment/Systems

• Understanding the stability of Cost Over Time

• Understanding the Total Value of Proposed Procurement (or Program) with AoA and IGCE

• Determining Incentives for the Contractor

• Identifying Existing Contract Vehicles available

• Other factors, including National Security,

Maintenance of Alternate Production Lines, etc

Balancing multiple factors to develop

a strategy that maximizes success

factors and

minimizes risk

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Awarding a large, complex contract presented

challenges to the Program and Contracts Office

• Critical Success Factors:

– Successful Milestone Decision Reviews

– Timely Contract Award

– Award without protest

– Adequate competition

– Receipt of reasonable price proposals

– Integration of Performance Based Contracting techniques

– Compliance with regulations, legislation,

and mandates

– Positive findings when subjected to scrutiny of oversight organizations (GAO, IG, OMB, etcP)

Capability for success:

• Use experienced professionals to

develop and implement strategies

• Use proven processes

• Apply best practices

• Apply proven tools

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The acquisition had to comply with major systems

processes and documents

Final Proposals Evals)

Program and Contract Transition

Requirements Synopsis

Operational Capability

Cost Benefit Analysis

Acquisition Strategy

Clinger Cohen Compliance

Risk Management Plan

Acquisition Plan

Performance Work Statement

Performance Assessment Plan

Source Selection Plan

Request for Proposals

Pre-Proposal Industry Days

Proposal Evaluations)

Negotiations with Industry

Contract Awards

•Acquisition approach

•Best Practices•Business Considerations

•Capability needs•Environment, Safety, Health•Human Systems Integration

•Information Assurance•Information Technology

•Integrated Test and Evaluation•Open Systems•Product Support

•Program Structure•Relief, Exemption and waiver

•Research and technology Protection•Resource Management•Risk Management

•Systems Engineering

Strategy Considerations:

Acquisitions have requirements documents•Analysis of Alternatives (AoA)

•Independent Government Cost Estimate (IGCE)

•Life Cycle Cost Estimates (LCCE)•Statement of Work (SOW)

•Metrics for Service Level Agreements (SLAs)

•Acquisition Plan (AP)•Source Selection Plan (SSP)•CLIN List

•Evaluation Criteria (L&M)•Technical Evaluation Panel

documentation•Pricing Negotiation Memos

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The Acquisition was embedded into the PMO

Structure during execution of the acquisition

PROJECT OPERATIONS

ACQUISITION FUNCTIONAL TECHNICALCHANGE

MANAGEMENT

• Cost Management

• Schedule Management

• Resource Management

• Performance Measurement

• OMB Exhibit 300 Reporting

• Risk Management

• Requirements

Management

• System Development Life-

Cycle Management

• Know ledge Management

• Concept

Development

• Acquisition

Strategy

• Market

Research

• Solicitation

Development

• Source

Selection and

Award

• Protest

support

• Contract

Management

• Requirements Identif ication

• BPR

Participation

• Functional

Representatio

n of Evaluation

Criteria &

Materials

Development

• Requirements Identif ication

• Technical

Representation of

Evaluation

Criteria &

Materials

Development

• IT Architecture

• Data

Management

• Configuration Management

• Security

• Communications & Outreach

• End-Users

Relations Management

• Business Process

Reengineering

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Military System Acquisition – Lessons Learned

• Source Selection Training was vital– All on same page (rules and tools)

• All dependencies were clear– Milestone approvals to SSA were met

• SSA, SSET, Evaluators, Advisors all on task and motivated

– Leadership was strong, team understand the objectives and commitments

• Consensus of evaluation ratings critical (spirited dialog)

• Best Value Decision was quantified for requirements

– Differentiators supported trade off analysis for best value

• Follow the procedures! (Tanker)

Capability for success:

• Use experienced professionals to

develop and implement strategies

• Use proven processes

• Apply best practices

• Apply proven tools

• Develop Source Selection training modules

• Develop Source Selection templates

• Utilize proven tools

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Acquisition Strategies – Best Practices

• Methodologies that provide processes and products to support requirements determination through execution

• Tools and templates must be integrated and relevant

• Best practices for strategy, planning, source selection and performance measurement are critical throughout the life cycle

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Processes and products are needed across the

acquisition life cycle framework

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Tools are available to support requirements analysis

and source selection

• Risk tools• RISC-IQ• Active Risk Manager• Pertmaster – Risk Expert• Risk +• Risk Radar• @Risk• Risk Trak• RiskWatch• TopVue• Welcom Risk• Risky Project

• Project Management Tools

– PMI’s OPM3– iCAM

Planning System

Scope Data

Schedule Data

Performance Measurement Tools

•Database•MySQL •Enterprise Elements•Troux Architect

•Reports•MS Office•Crystal Reports

•Dashboards – COTS•Crystal Xcelsius•Cognos •Oracle •MS PerformancePoint•DataDril l

•Dashboards – Manual•MS Office•SharePoint

•Software Development•MS .Net Platform•Cold Fusion •Rational•Requisite Pro•JIRA•Plumtree •Adobe Flex•LCMP

•Statistical Analysis•SPSS•SAS

Planning and Scheduling tools

•PERT Chart Expert•WBS Chart Pro•Kidasa Milestones•Primavera•MS Project•Prosight•Project Management Environment

Acquisition tools•Perf ormance Based Acquisitions Guidebook•Contract Ty pe Decision Tool diagnostic•Contract Management Process Guide•A-76 Source Selection Guidebook•DoD Acquisition Desk guide•Award Tracking Sof tware

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Best practices in planning is required for success

and to ensure requirements are met

Critical Success Factor Best Practices / Solutions

Engage stakeholder early in the cycle

• Conduct meetings with all stakeholders to help define functional and technical requirements

• For larger acquisitions, institute integrated product teams with contracts, PMs, finance, security, etc

• Have a feedback loop to keep communications open

Employ standard acquisition processes

and templates

• Standard, well-communicated processes and templates gains efficiency and allows for streamlining of the process since you know what to expect

• Provide user-friendly intranet website that provides access to templates, examples forms, regulations, etc.

• Develop a checklist to ensure all bases are covered

Establish performance-oriented contract development

approaches

• Employ performance-based methods for acquisitions of services

• Create templates for performance-based contract documentation

Understand prevailing best practices for Performance Based

Acquisition (PBA)

• Provide PBA training to all stakeholders

• Work with the PMs from the start to not only understand their requirement, but to facilitate performance standards that are measurable and achievable

• Create a repository of policy, guidance, and templates pertaining to PBA methods

Know the Market• Interview/access more internal stakeholders to get a more detailed, technical understanding of the requirements and

what services are available in the market – become the business advisor

Procurement Life Cycle – Acquisition Planning / Solicitation Best Practices

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Best Practices in source selection should support a

well-structured process

Critical Success Factor Best Practices / Solutions

Issuance of a work statement that facilitates

quality goals and

performance objectives

• Working early and often with the CO allows for better understanding of the PM’s needs, increased knowledge of contracting by the PM, facilitation of better communication throughout the acquisition process, and improved teamwork; interaction early and often has lead to the procurements that are awarded on time and less likely to be protested

Evaluation is conducted in accordance with the Source Selection Plan (SSP) and

Solicitation

• Providing adequate training to the Technical Evaluation Panel (TEP) is not only necessary but a requirement; ensure that TEP members fully understand the SSP and evaluate offers against the factors set forth in the SSP and solicitation

• Provide templates, and possibly, an evaluation tool, to capture weightings and narrative comments

• Have the CO or its representative facilitate the evaluation to ensure compliance with the SSP/solicitation and narrative that supports scoring

Ensure that the source selection is well

documented and the

contract file complete

• Use FAR requirements to develop evaluation documentation

• Ensure that each TEP member returns evaluation materials

• Maintain the contract fi le as accurately as possible and store it where it can be accessed by other COs

Safeguard proprietary information from

unauthorized disclosure

• Establish standardized “rules of conduct” for use in all evaluations

• Develop end-of-day procedures for securing hard copy documentation and computer fi les; these procedures should be followed by all evaluation participants

Procurement Life Cycle – Evaluation of Offers and Source Selection Best Practices

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Best Practices in defined performance criteria and

structured monitoring are critical to ensure delivery

Procurement Life Cycle – Contract Award, Administration, and Management Best Practices

Critical Success Factor Best Practices / Solutions

Improve the value received and quality achieved

• Invite the CO to participate in contract performance review meetings; provide insight into modifications needed, or, in instances of poor performance, what corrective actions are pursued

• Provide training to COTRs regarding performance measures and ways to incentivize the vendor to perform to the best of their abil ities

• Ensure the CO receives and reviews monthly progress reports

• Provide Earned Value Management expertise and review reports to address variance in cost, schedule, and performance

• Use workload software for electronic contract files to management modifications, expenditures and deliverables; ensure that CO, COTR, and PM have access to software

Invoices are approved and processed within the

guidelines of the Prompt

Pay Act

• Use an automated tickler system to track the process and approval of invoices

• Ensure that the vendor understands the format of and expectations for invoices

• Ensure that PMs understand their role in the review and approval of invoices through training and guidance

Closely monitor contractor performance to ensure supplies/services are on

time and budget

• Institute processes for formal, annual monitoring of technical performance, awareness of financial status, and mitigation of performance risks

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Points of Contact

Ginny Wydler703 377-5577

Wydler_Virginia@bah.com

Paul Tetrault703 917-2737

Tetrault_Paul@bah.com

Doug Zwiselsberger703-824-3783

Zwiselsberger_Douglas@bah.com

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QUESTIONS?