Guidebook for the Acquisition of Services Department of Defense June 5, 2012 table of contents



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Guidebook for the

Acquisition of Services

Department of Defense

June 5, 2012

TABLE OF CONTENTS


I INTRODUCTION TO THE ACQUISITION OF SERVICES 7

a. The Services Acquisition Process 7

b. What is a Service Requirement? 9

c. Non-Personal Services Requirements 9

d. Personal Services Requirements 10

e. Preference for Performance-Based Acquisitions (PBA) for Services 10

f. Objectives of Performance-Based Acquisition (PBA) 10

g. Principles of Performance-Based Acquisition (PBA) for Service Requirements 11



II THE PLANNING PHASE 13

i. Ensure Senior Management Involvement and Support 13

i. Ensure Senior Management Involvement and Support 13

ii. Form the Team and Team Charter 14

ii. Form the Team and Team Charter 14

iii. Identify and Analyze Stakeholders, Nurture Consensus 16

iii. Identify and Analyze Stakeholders, Nurture Consensus 16

iv. Develop a Communication Plan 16

iv. Develop a Communication Plan 16

v. Develop and Maintain Knowledge Base over the Project Life 16

v. Develop and Maintain Knowledge Base over the Project Life 16

vi. Plan and Schedule Topical Team Training 16

vi. Plan and Schedule Topical Team Training 16

Step Two – Review Current Strategy 17



i. Identify Current Initiatives/Contracts 17

i. Identify Current Initiatives/Contracts 17

ii. Review and Document Current Level of Performance 18

ii. Review and Document Current Level of Performance 18

iii. Begin Program Risk Identification 18

iii. Begin Program Risk Identification 18

iv. Document Current Processes 18

iv. Document Current Processes 18

v. Determine Status of Government Furnished Property/Materials/Facilities 18

v. Determine Status of Government Furnished Property/Materials/Facilities 18

vi. Stakeholder Submits Current and Projected Requirements Forecast 18

vi. Stakeholder Submits Current and Projected Requirements Forecast 18

vii. Review Current/Statutory Requirements 18

vii. Review Current/Statutory Requirements 18

viii. Define (at a High Level) Desired Results 19

viii. Define (at a High Level) Desired Results 19

ix. Review Current Performance and Desired Results with Stakeholders and Users 19

ix. Review Current Performance and Desired Results with Stakeholders and Users 19

x. Refine Desired Results and Validate with Stakeholders 19

x. Refine Desired Results and Validate with Stakeholders 19

Step Three – Market Research 20



i. Take a Team Approach to Market Research 20

i. Take a Team Approach to Market Research 20

ii. Determine Data Sources 21

ii. Determine Data Sources 21

iii. Develop a Standardized Interview Guide 21

iii. Develop a Standardized Interview Guide 21

iv. Conduct Market Research 21

iv. Conduct Market Research 21

i. Customers 22

ii. Consider One-on-One Meetings with Industry 22

iii. Look for Existing Contracts 22



v. Request Information From Service Providers 22

v. Request Information From Service Providers 22

vi. Analyze Market Research 23

vi. Analyze Market Research 23

vii. Document Market Research and Trends 23

vii. Document Market Research and Trends 23

III THE DEVELOPMENT PHASE 23

Step Four – Requirement Definition 24

4.1 Conduct Performance Risk Analysis 24

4.2 Conduct a Requirements Analysis 26

4.3 Build Requirements Roadmap 27

i. Automated Requirements Roadmap Tool 29

The Automated Requirements Roadmap Tool (ARRT) is a job assistance tool that enables users to develop and organize performance requirements into draft versions of the performance work statement (PWS), the quality assurance surveillance plan (QASP), and the performance requirements summary (PRS). ARRT provides a standard template for these documents and some default text that can be modified to suit the needs of a particular contract. This tool should be used to prepare contract documents for all performance-based acquisitions for services. The ARRT is available for download at: https://sam.dau.mil/ARRTRegistration.aspx 29

ii. Acceptable Quality Levels (AQLs) 29

iii. Performance Assessment Strategies 30

iv. Performance Assessment Personnel 30

v. Assessment Methods 31

vi. Contractor’s Quality Control Plan 32

vii. Create Your Performance Reporting Structure 32

4.4 Standardize Requirements Where Possible to Leverage Market Influence 32

4.5 Develop a Performance Work Statement (PWS) or Statement of Objectives (SOO) 33

i. Format 33

ii. Best Practices and Lessons Learned for Developing PWS 34

iii. Style Guidelines for Writing PWS 35

iv. Reviewing your PWS 36

4.6 Develop Quality Assessment Surveillance Plan (QASP) Outline 36

4.7 Develop Independent Government Estimate (IGE) Based on the newly defined requirement 37

4.8 Establish Stakeholder Consensus 37

Step Five – Develop an Acquisition Strategy 38

i. Develop Preliminary Business Case and Acquisition Strategy 38

i. Develop Preliminary Business Case and Acquisition Strategy 38

ii. Finalize Acquisition Strategy 39

ii. Finalize Acquisition Strategy 39

1. Types of Contracts 39

1. Types of Contracts 39

1. Fixed-Price Contract Types 39

1. Fixed-Price Contract Types 39

2. Cost Reimbursement Contract Types 39

2. Cost Reimbursement Contract Types 39

2. Incentives - Recognize the Power of Profit as a Motivator 40

2. Incentives - Recognize the Power of Profit as a Motivator 40

5.2.2.1 Positive and Negative Incentive Examples 41

5.2.2.1 Positive and Negative Incentive Examples 41

5.2.2.2 Considerations When Contemplating Incentives 41

5.2.2.2 Considerations When Contemplating Incentives 41

3. Determine How You Will Select a Contractor 42

3. Determine How You Will Select a Contractor 42

iii. Allocate Workload Within the Acquisition Team 42

iii. Allocate Workload Within the Acquisition Team 42

iv. Prepare Acquisition Planning Documents 43

iv. Prepare Acquisition Planning Documents 43

v. Consider use of Draft Request for Proposal (RFP) 43

v. Consider use of Draft Request for Proposal (RFP) 43

IV THE EXECUTION PHASE 44

Step Six – Execute the Strategy 44



1. Issue Request for Proposal (RFP) or Military Interdepartmental Purchase Request (MIPR) 44

1. Issue Request for Proposal (RFP) or Military Interdepartmental Purchase Request (MIPR) 44

2. Conduct Source Selection 44

2. Conduct Source Selection 44

1. Instructions to Offerors 45

1. Instructions to Offerors 45

2. Section L 45

2. Section L 45

3. Section M Evaluation Factors for Award 46

3. Section M Evaluation Factors for Award 46

4. Relationship between PWS, Section L, and Section M 46

4. Relationship between PWS, Section L, and Section M 46

5. Role of Past Performance in Best Value Procurements 46

5. Role of Past Performance in Best Value Procurements 46

3. Pre-Award Approval Documents 47

3. Pre-Award Approval Documents 47

4. Contract Award 47

4. Contract Award 47

5. Debrief Unsuccessful Offerors 47

5. Debrief Unsuccessful Offerors 47

6. Finalize Quality Assurance Surveillance Plan (QASP) 47

6. Finalize Quality Assurance Surveillance Plan (QASP) 47

7. Post-Award Implementation/Transition 47

7. Post-Award Implementation/Transition 47

Step Seven – Performance Management 48



i. Transition to Performance Management 48

i. Transition to Performance Management 48

ii. Manage and Administer Overall Program 49

ii. Manage and Administer Overall Program 49

iii. Manage Performance Results 49

iii. Manage Performance Results 49

i. Monitor Contract Performance 50



i. Monitor Contract Performance 50

ii. CPARS report and Past Performance Information Retrieval System (PPIRS) 50



ii. CPARS report and Past Performance Information Retrieval System (PPIRS) 50

iv. Conduct Quarterly Supplier and Key Stakeholders Performance Reviews 51

iv. Conduct Quarterly Supplier and Key Stakeholders Performance Reviews 51

v. Evaluate Effectiveness of Strategy 51

v. Evaluate Effectiveness of Strategy 51

vi. Develop Plan for Managing Continuous Improvement 51

vi. Develop Plan for Managing Continuous Improvement 51

1. REQUIREMENTS ROADMAP WORKSHEET 52

2. SERVICE ACQUISITION PROJECT PLAN 53

3. SERVICE ACQUISITION MALL (SAM) 58

4. MARKET RESEARCH RESOURCES 59

5. Glossary 60



LIST OF FIGURES


Figure 1-1: The Services Acquisition Process 8

Figure 1-2: Model of Step One 13

Figure 2-1: Model of Step Two 17

Figure 3-1: Model of Step Three 20

Figure 4-1: Model of Step Four 24

Figure 4-2: Risk Analysis Model 26

Figure 4-3: Requirements Roadmap Worksheet 27

Figure 4-4: Performance Indicators 32

Figure 5-1: Model of Step Five 38

Figure 6-1: Model of Step Six 44

Figure 7-1: Model of Step Seven 48

Figure 7-2: Performance Indicators 50

Figure A-1: Requirements Roadmap Worksheet 52

Figure D-1: Model of SAM 58


LIST OF TABLES


Table 1-1: Performance Outcomes 12

Table 4-1: Sections L and M Relationship Example 46


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