15 - Consolidation Determination

CONSOLIDATION DETERMINATION

MAS REFORM INITIATIVE

SECTION I - EXECUTIVE SUMMARY

The General Services Administration (GSA), Federal Acquisition Service (FAS), Multiple Award Schedules (MAS) Program, also known as the Federal Supply Schedule program, establishes long-term, governmentwide contracts with commercial firms offering millions of commercial supplies and services that federal, state, and local agencies order directly from GSA Schedule contractors, or through the GSA Advantage!® online shopping and ordering system. Approximately $31 billion dollars is spent through the MAS program each year. GSA’s MAS Program Management Office (PMO) is responsible for managing this program on behalf of the agency.

The MAS PMO analyzed the benefits of consolidating the 24 GSA-managed Schedule1 solicitations into one solicitation for products, services, and solutions. Consolidating these Schedules is critical to the success of the agency’s mission to deliver value and savings in real estate, acquisition, technology, and other mission-support services across government. MAS Consolidation is a key element in GSA’s plan to modernize and simplify the buying and selling experience for customers, suppliers, and acquisition professionals under the Federal Marketplace (FMP) Strategy.

Specific Federal agency requirements are not identified, estimated, or managed at the MAS-program level; therefore, it is impossible to accurately quantify the benefits of this action as a percentage of estimated value. Although the quantitative benefits of this initiative cannot be reasonably estimated, the MAS PMO does anticipate a number of significant qualitative benefits.

These benefits include improvements that will save time, promote efficiency, reduce acquisition cycle times, and simplify the terms and conditions of the MAS program. Through MAS Consolidation, the MAS PMO will establish a more intuitive structure that streamlines customer access to contract offerings and eliminates duplication of items throughout the program. Improved consistency of terms and conditions will reduce administrative burden and improve efficiency and effectiveness throughout the order process. This initiative to modernize acquisition will make it easier and more efficient for industry to do business with federal, state, and local governments.

In consolidating these solicitations, the MAS PMO will not be changing the scope of commercial products and services available under the MAS program, nor will this consolidation limit participation opportunities for small businesses. Current segments of the MAS program that are set-aside for small business will continue to be set-aside after consolidation is complete and other elements of the program specifically designed to benefit small business will remain in place. The MAS PMO reserves the right to further set-aside segments of the MAS program for small business in a continuous effort to promote maximum practicable opportunity for them. In addition, this initiative will not affect existing guidance requiring ordering activities to provide maximum practicable opportunities to small businesses at the individual order level.

Consolidating the 24 GSA-managed Schedule solicitations into one solicitation is critical to the success of GSA’s mission. This approach provides the most optimal solution, and the benefits realized as a result of this consolidated solicitation outweigh any possible negative impacts to small businesses.

1 Also referred to as Multiple Award Schedules (MAS) and Federal Supply Schedules

Table 1: Executive Summary

Project Title: MAS Consolidation

Contracting Office:

(include Region)

GSA FAS Region 3 (On Behalf of MAS PMO)

Total Estimated Contract Value: Above $94 million* *Estimated overall annual sales volume of MAS program

Contract Requirements: Supplies and Services

NAICS Code: Various (excluding 42 and 92 series)

Period of Performance: N/A - Resulting contracts will have five-year base plus three five-year options

Deviations Applicable? Yes, the MAS program includes several previously approved and implemented clause deviations

Business Case Applicable? Yes

Program Initiative? Federal Marketplace (FMP) Strategy, MAS program

Intended Contract Structure: - Multiple Award IDIQ

- Fixed-price with economic price adjustment

- Partially Set-aside for Small Business through previously established set-aside Special Item Numbers (SINs)

Previous Contract Structure: Same elements as above

Substantial Benefits Expected: Substantial benefits cannot be quantified

SECTION II - ACQUISITION HISTORY

Products/Services

In accordance with Federal Acquisition Regulation (FAR) 38.1012, the Federal Supply Schedule program provides commercial supplies, services, and solutions directly from industry partners to Civilian and Defense Federal government agencies and other authorized users outlined in GSA Order ADM 4800.2I.

Overall scope and place of performance (CONUS or OCONUS) for MAS offerors is determined at the time of award of the Schedule contract. Specific place of performance is determined at the order level. A list ofNorth American Industry Classification System (NAICS) and associated size standards for the new MAS Consolidation solicitation is attached.

Customers The primary customers of the MAS program are both Civilian and Defense Federal government agencies.

In special circumstances, other customers may also use the Schedules. A list of eligible users of the MAS contracts is found in GSA Order ADM 4800.2I.

Existing Contracts In FY 2018, there were 16,238 contracts awarded under the MAS program, 11,071 of those contracts were held by small businesses.

New Requirements (if applicable) There are no new requirements proposed in conjunction with this initiative.

SECTION III - MARKET RESEARCH OVERVIEW

Extensive market research was conducted in order to better understand the impact of consolidating the 24 Schedule solicitations into one solicitation. Below are the primary market research methods used in support of this effort:

Data Analysis:3

Small Business Sales and Contract Count:

Findings: Based on the analysis of the current state of the MAS program, the MAS PMO expects no negative impact to small businesses as a result of consolidating the Schedule solicitation. Table 1 below shows that only the number of contracts will be decreased through consolidation, as one of the goals of consolidation is to have one contract per unique entity identifier. The participation, sales volume and number of small businesses is expected to remain steady after the consolidation.

Impact on consolidation strategy: The analysis supports the strategy of consolidating the 24 solicitations into one. Small business participation is expected to hold steady at 36.7% of overall MAS program sales.

The overall number of contracts small business partners are required to administer is expected to drop by 10% from 11,071 to an estimated 9,947. This is expected to result in an overall reduction in administrative costs and a net benefit to small businesses.

2 38.101 General.

(a) The Federal Supply Schedule program, pursuant to 41 U.S.C.152(3), provides Federal agencies with a simplified process of acquiring commercial supplies and services in varying quantities while obtaining volume discounts. Indefinite-delivery contracts are awarded using competitive procedures to firms. The firms provide supplies and services at stated prices for given periods of time, for delivery within a stated geographic area such as the 48 contiguous states, the District of Columbia, Alaska, Hawaii, and overseas. The schedule contracting office issues Federal Supply Schedule publications that contain a general overview of the Federal Supply Schedule (FSS) program and address pertinent topics.

3 Data pulled from Schedules Sales Query plus (SSQ+) for Fiscal Year 2018.

https://www.gsa.gov/directives-library/eligibility-to-use-gsa-sources-of-supply-and-services-48002i-ogp https://www.gsa.gov/directives-library/eligibility-to-use-gsa-sources-of-supply-and-services-48002i-ogp https://d2d.gsa.gov/report/fas-schedule-sales-query-plus-ssq

TABLE 1:

Small Business Socio-Economic Status

Small Business Participation

Before and After Consolidation

Sales Volume Before and After Consolidation

Number of Contractors Before and After Consolidation

Number of Contracts Before Consolidation

Number of Contracts After Consolidation

Change in number of contractors

Small Business 36.7% $12,075.7M 9,947 11,071 9,947 0

NAICS Codes and SBA Size Standards5:

Findings: As illustrated in Table 2 below, 91% of current MAS small businesses have selected a preponderance of work NAICS code with a corresponding size standard from $15M to $38.5M in annual receipts or a staff 500 to 1500 employees.

As illustrated in Table 3, 90% of SINs under the proposed new structure will utilize a NAICS code with a corresponding size standard from $15M to $38.5M in annual receipts or a staff 500 to 1500 employees.

4 Small business participation is based on business volume.

5 Data pulled from URSA query of current MAS contractors as of 7.24.2019 in comparison with SBA size standards of proposed new MAS structure

While the number of available NAICS codes will be reduced from the 433 currently utilized to 201 under the new structure, the level of size standards available across the program will be virtually identical to the current structure.

Impact on consolidation strategy: The analysis supports the consolidation of the 24 solicitations into one.

The MAS PMO anticipates that this initiative will result in the vast majority of current and prospective MAS contractors selecting a preponderance of work NAICS code and corresponding size standard that aligns with the current structure of the MAS program.

Market Research Efforts:

● September, 2017: Issued FAS Federal Marketplace (FMP)/MAS Supplier Pulse Survey (SPS) to solicit feedback specific to supplier satisfaction with the MAS program.

○ Findings: This survey resulted in approximately 100 responses with specific feedback on the performance and management of the MAS program. The results of the survey identified the following as major improvement areas for the MAS program:

■ Eliminate the need for multiple Schedule contracts in order to offer a wide variety of commercial products and services

■ The need for quicker processing of modifications

■ The confusion that exists with RFQs being posted under incorrect SINs

■ The need for fewer SINs

■ The need to address inconsistency among Contracting Officers (COs) and across regions, eliminating different rules by Schedule, FAS Center and within contracting centers

■ The need to address issues with non-Responsive COs

○ This feedback contributed to the development of several End State Options for reforming the MAS program. These options are outlined below in Section IV.

● September, 2017: Issued FAS Customer Loyalty Survey to solicit feedback on GSA acquisition solutions, including the MAS program.

○ Findings: This survey resulted in approximately 4,000 responses with specific feedback on the performance and management of the MAS program.

○ Impact on strategy: This feedback showed an overall need to improve GSA’s management of the MAS program in order to improve customer satisfaction. This feedback contributed to the development of several End State Options for reforming the MAS program.

● February, 2018: Held MAS Reform Integrated Product Team (IPT) Offsite Session 1. The IPT included representatives from all levels of MAS program management and was established to gather a wide-range of perspectives from all affected stakeholders as the MAS PMO considered how to improve the MAS program.

○ Findings: This session resulted in initial thoughts about how to improve the MAS program based on stakeholder feedback.

○ Impact on strategy: This session contributed to the development of several End State Options for reforming the MAS program.

● March, 2018: Solicited feedback from the GSA FAS Leadership and the Acquisition Workforce (AWF) responsible for performing the full range of acquisition life cycle tasks for MAS contracts.

This survey was issued in order to determine what changes could be made to the MAS program in order to save time, improve or enhance performance, improve efficiency, reduce acquisition cycle times and improve the terms and conditions of the program.

○ Findings: This survey resulted in approximately 40 specific recommendations that would contribute to the improvement of the MAS program.

○ Impact on strategy: These recommendations contributed to the development of several End State Options for reforming the MAS program.

● June, 2018: Held MAS Reform IPT Offsite Session 2. This IPT represents all levels of MAS program management and was established to gather a wide-range of perspectives from all affected stakeholders as the MAS PMO considered how to improve the MAS program.

○ Findings: This session considered the existing feedback from customers and suppliers and incorporated the feedback from internal stakeholders. Collectively, this information supported restructuring of the MAS program.

○ Impact on strategy: This session directly contributed to the development of several End State Options for reforming the MAS program.

● October, 2018: Held MAS ReformIPT Offsite Session 3. This IPT represents all levels of MAS program management and was established to gather a wide-range of perspectives from all affected stakeholders as the MAS PMO considered how to improve the MAS program.

○ Findings: This session was aimed at finalizing the End State Options for MAS reform and proposing an implementation plan for those options.

○ Impact on strategy: This session finalized the End State Options for reforming the MAS program.

● November, 2018: Decision Paper on Future State of the Multiple Award Schedules (MAS) Contract Vehicle was signed by GSA Administrator Emily Murphy.

○ This paper outlines the consideration of the End State Options developed by the MAS IPT and the Administrator's ultimate decision to initiate the consolidation of 24 Schedule Vehicles into one Schedule vehicle.

● November, 2018: Industry was first notified of the decision to consolidate the 24 GSA managed Schedules to one by a press release.

https://www.gsa.gov/about-us/newsroom/news-releases/gsa-announces-transformation-of-multiple-awards-schedules

Requests for Information (RFI)

● June 7, 2019: Issued a Request for Information (RFI) via GSA Interact, FedBizOpps (FBO) and GSA eBuy to obtain feedback on the structure and content of the proposed consolidated MAS solicitation.

○ Findings:

■ Received 586 completed responses from industry, 430 responses (73%) from small businesses

■ Overall 87.5%6 of industry felt that the proposed changes to the solicitation format will result in a clear benefit to industry.

○ Impact on strategy:

■ None, as only minor changes were made to the structure and content of MAS Consolidation solicitation based on industry feedback.

● June 26, 2019: Issued a RFI) via GSA Interact, FBO and GSA eBuy to obtain feedback on the new large categories, subcategories and Special Items Numbers (SINs) and NAICS codes for the consolidated MAS solicitation

○ Findings:

■ Received 480 completed responses from industry, 347 responses (72%) from small businesses

■ Overall 78.3%7 of existing Schedule contractors agreed with the mapping of their current Schedule and SIN(s) to the new large categories, subcategories and SINs. .

○ Impact on strategy:

■ None, only minor changes to the large categories, subcategories, SINs and

NAICS codes were made based on industry feedback.

■ Overall, the results of this RFI showed that a clear majority of industry partners agreed with the alignment of their contract to the new structure; therefore, no significant changes were made to the overall strategy of this initiative.

One-on-One Meetings

● Throughout the acquisition planning process, the MAS PMO has encouraged all interested parties to send specific questions or concerns about this initiative to the MAS PMO.

○ Findings: The MAS PMO has responded to numerous requests for more information through email correspondence, phone calls, and in-person meetings. From these meetings, team members have adjusted industry-facing materials to ensure that questions and concerns are addressed.

○ Impact on strategy: The MAS PMO gained further knowledge of stakeholder concerns, and incorporated this feedback into the overall approach for this consolidation. Primarily these sessions resulted in raising awareness and understanding of the initiative, no significant changes to the strategy were made.

Industry Days

6 Percentage derived using partial survey data.

7 Percentage derived using partial survey data.

● The MAS PMO hosted or participated in 16 virtual and in-person industry days and events between December 2018 and July, 2019.

○ Findings: Feedback obtained from these industry days reflected industry’s support of the MAS consolidation effort. The general feedback provided was the MAS consolidation effort would not impact their ability to continue to provide the same commercial products and services they currently provide through the MAS program.

○ Impact on strategy: None, as this feedback instead supported this effort. The MAS PMO created a Frequently Asked Questions (FAQ) document to answer common questions that were raised at these events. This document is housed on the GSA Interact blog.

GSA Interact Blog

On November 27, 2018, the MAS PMO began using the web blog forum on GSA Interact (which is a publicly accessible blog) to communicate changes related to the MAS program. The purpose of this blog was to provide a forum where industry partners and customers could obtain relevant information, materials, and discussion points about the MAS consolidation.

SECTION IV - ALTERNATIVES INVOLVING A LESSER DEGREE OF

CONSOLIDATION

The MAS PMO considered the following alternatives involving a lesser degree of consolidation prior to deciding to consolidate the current 24 Schedules to one.

Alternative 1: Status quo In this alternative, future projects and proofs of concept would be used to determine Schedule offerings.

Although feasible, this option had the following drawbacks:

● Potential for competitive and duplicative product offerings:

○ Duplication continues and proliferates across all Schedule solicitations resulting from new SIN creations

○ Industry is forced to maintain multiple Schedule contracts and have multiple Schedule specific POCs in FAS

○ Industry-created price lists conflict with commercial buying practices vs. government procurement rules

○ As a result customers are challenged doing business (i.e., conducting acquisitions) in a way that is not efficient or intuitive

○ Continued lack of consistency on policies and procedures among Acquisition Centers

○ Continued creation of clauses to work around the duplication across all Schedule solicitations

Alternative 2: Align Schedule solicitations per Category Management In this alternative the current 24 Schedules would be consolidated to 10 Schedules that align with the 10 Office of Management and Budget (OMB) Government-wide categories (i.e., Facilities and Construction, Professional Services, IT, Medical, Transportation and Logistics, Industrial Products and Services, Travel, https://interact.gsa.gov/node/462394 https://interact.gsa.gov/node/462394 https://interact.gsa.gov/node/462394 https://interact.gsa.gov/node/462394 https://interact.gsa.gov/node/462394

Security & Protection, Human Capital, and Office Management). Although feasible, this alternative had the following drawbacks:

● Potential for competitive and duplicative product offerings

● Challenges associated with equitable distribution of contract workload amongst the Categories

● Contract workload may not be equitably distributed amongst the Categories

● Increased Acquisition Workforce (AWF) work/burden during transition and launch

● Structure is dictated by established category format rather than intuitive classification of available offerings customers can easily navigate

● Multiple Schedule contracts would still need to be maintained by remaining Schedule holders to ensure they are able to offer the full spectrum of their offerings and to ensure customer access.

(i.e., when customer requirements span across multiple categories/Schedule solicitations)

● Will not solve challenges of major duplications (i.e., Schedules 84 and 70) and Special Item Number (SIN) duplication

● Agencies would continue to need Contractor Teaming Agreements (CTAs) for instances where scopes of work stretch across multiple categories/Schedules

Alternative 3: Move Professional Services to a new Indefinite Delivery/Indefinite Quantity (IDIQ) combining with Governement-Wide Acquisition Contracts (GWACs) and One Acquisition Solution for Integrated Services (OASIS). In this alternative, professional services are removed from the 24 Schedule Solicitations and a new IDIQ is created to replace GWACS, OASIS and professional services on MAS.

Although feasible, this alternative had the following drawbacks:

● Loss of the simplicity that FAR subpart 8.4 ordering procedures offers such as those available for Blanket Purchase Agreements (BPAs) and CTAs

● Potential limitations on length of IDIQ vs. MAS Schedule Contracts, reduced period of performance impact on administrative costs

● IDIQs have an established maximum order value that cannot be exceeded vs. MAS Schedule contracts with a ceiling value established for orders

● Reduction in the number of small businesses who cannot provide non-commercial products or services, especially under cost reimbursement vehicles

● Limited opportunities for small businesses to participate since these vehicles typically do not have a continuously open solicitation as is established under the MAS program

● Potential negative impact on small business if there is not a continuously open solicitation

● Ongoing administration of existing Schedule contracts would likely be required for an extended period of time resulting in a duplication of effort

● Status quo for products where customers are challenged doing business (i.e., conducting acquisitions) in a way that is not efficient or intuitive

● Industry is forced to maintain multiple contracts to offer their breadth of offerings

● The AWF is required to maintain multiple contracts

● Continued burden for solution requirements that need both services and supplies

CONTRACTING APPROACH SELECTED

Consolidate 24 Schedules into One After consideration of the various alternatives developed through the process described in this document, the MAS PMO ultimately recommended consolidating the 24 GSA-managed Schedule solicitations into one solicitation. In this alternative, the 24 current Schedule solicitations will be consolidated into a single solicitation. The single solicitation will be generally aligned with the Category Management structure prescribed by OMB. This recommendation was presented and approved by the GSA Administrator on November 12, 2018 (see the document entitled “Decision Paper on Future State of the Multiple Award Schedules (MAS) Contract Vehicle”). This initiative will occur in three phases as outlined below:

● Phase I: Issue a single, consolidated solicitation covering the 24 current Schedules. This includes a new solicitation format, streamlined instructions, and the reorganization of schedule offerings into Large Category, subcategory and SIN.

● Phase II: Transition current Schedule contractors from the legacy Schedule solicitations to the new, consolidated solicitation. This process will be accomplished through the issuance of a mass modification to all Schedule contractors. It is anticipated that Phase II will be accomplished over a 6-month period.

● Phase III: Those Schedule contractors that have multiple contracts under different legacy Schedules will be consolidated into a single contract. This process will be accomplished in close coordination with the impacted Centers and Schedule contractors using the existing modification process. It is anticipated that Phase III will require a transitional period as contractors select their single contract and allow existing orders to be completed under legacy contracts.

SECTION V - NEGATIVE IMPACT TO SMALL BUSINESS

The MAS PMO anticipates that any negative impact to small businesses at the prime or subcontracting level will be offset by the benefits realized as a result of this initiative. All existing small business set-aside categories (SINs) and other small business strategies will be retained under this consolidation.

Additionally, with the support of GSA’s Office of Small Business Utilization (OSBU) and the Small Business Administration (SBA), MAS CO’s will continue to seek maximum practicable opportunity when establishing subcontracting goals for contracts awarded to “other than small business” in accordance with relevant policy.

As shown in Table 4 below, small businesses account for approximately 37% of total sales under the MAS program. It is anticipated this proportion will hold steady throughout the initiative and that administrative costs to industry will be reduced, resulting in a net gain for small business partners.

Table 4: Existing Contracts8

Number of Contracts

Contract Type

BusinesSize Total Contract Value Annually

16,238 IDIQ All $32,910.9M

11,071 IDIQ Small Business $12,075.7M

8 Data pulled from Schedules Sales Query plus (SSQ+) for Fiscal Year 2018.

https://d2d.gsa.gov/report/fas-schedule-sales-query-plus-ssq

Potential impact to small business participation for each phase of the MAS Consolidation effort is described below:

● Phase I - Issue a single, consolidated solicitation covering the 24 current Schedules: The MAS PMO anticipates that there will be no negative impact to current small business partners during this phase of implementation based on the following:

○ The scope and structure of their contract will not change

○ Prospective small business partners will submit offers under the new solicitation structure which will result in expanded opportunity for small business

○ Assigned NAICS codes have been revised to ensure a more appropriate, consistent size standard for each SIN under the MAS program

○ While the full range and variety of NAICS codes available under the MAS program will be reduced under the new structure, the level of size standards applied across the program will be virtually identical to the current structure

● Phase II - Transitioning current contractors to the new,= consolidated solicitation: The MAS PMO anticipates that there will be no negative impact to current small business partners during the second phase of implementation based on the following:

○ The scope and structure of their contract will not change

○ During this phase, contractors will accept a mass modification to transition their current contract(s) to the streamlined terms and conditions and large category, subcategory and SIN structure

○ SIN numbers and corresponding NAICS codes will be updated; however, small businesses will not be required to re-represent their business size until the specific circumstances outlined in clause 52.219-28 occur

This is consistent with the current process that is applied when NAICS codes are updated in MAS solicitations through a typical solicitation refresh

○ When a re-representation of business size is called for, a smaller population of NAICS codes will be available; however, the level of size standards applied across the program will be virtually identical to the current structure

● Phase III - Combining multiple contracts in a single MAS contract: The MAS PMO anticipates that there will be no negative impact to small business partners during the third and final phase of implementation based on the following:

○ During this phase, those small businesses that have multiple MAS contracts under different legacy Schedules will be consolidated into a single contract per Unique Entity Identifier

○ The Schedule items and corresponding terms and conditions will be transferred into a single contract with a single period of performance, preponderance of work NAICS, and corresponding SBA size standard

○ While the size standards and corresponding CO determined business sizes could vary across these multiple contracts, the contractor would be required to select or confirm a preponderance of work NAICS for the overall contract which will more accurately represent their business size based on their overall sales under the MAS program

○ This will result in a more accurate representation of all MAS contractors and will allow ordering activities to more appropriately make set-aside determinations at the MAS order level

○ It is anticipated that Phase III will require a transitional period as contractors select their single contract and allow existing orders to be completed under legacy contracts, this will ensure no negative impact on existing orders

SECTION VI - STEPS TAKEN TO INCLUDE SMALL BUSINESS

The MAS PMO analyzed the benefits of consolidating the 24 GSA-managed Schedule solicitations into one solicitation and actively worked to maximize existing and future opportunities for small businesses. In consolidating these solicitations, GSA will not be changing the scope of commercial products and services available under the MAS program, nor will this consolidation limit opportunities for small businesses to participate in the program. The following steps have been taken or will be taken in order to maximize small business participation under the MAS Consolidation effort:

● CO’s will continue to negotiate subcontracting goals with “other than small businesses” to maximize small business participation throughout the life of the MAS contract

● Current offerings of MAS small businesses will be retained throughout the process

● All SINs currently set-aside for small business under existing MAS solicitations will be retained under the MAS Consolidation solicitation

● Revision of NAICS codes assigned to SINs ensures the accurate and consistent identification of small businesses across the MAS program

● Significant reduction in the number of NAICS codes assigned to each SIN ensures a more accurate, consistent identification of small businesses across the MAS program

● The consolidated Schedule solicitation will remain open indefinitely to all qualified small businesses

● Customer agencies will continue to receive credit toward socio-economic program goals through the use of the Schedule

● The proposed structure will allow small businesses to provide greater offerings on one Schedule contract instead of having to go through the process of providing offers for different Schedule solicitations

● The proposed structure will allow small businesses to reduce the number of Schedule contracts they are required to maintain which will reduce contract administration costs

● The new structure may reduce the need for small businesses to participate in costly teaming arrangements to offer their full breadth of commercial products, services and solutions

SECTION VII - SUBSTANTIAL BENEFITS EXPECTED

The MAS PMO notes that, under the MAS program, the MAS solicitation establishes the general scope and basic terms and conditions applied to subsequent MAS contracts; however, the solicitation does not outline specific requirements of a Federal agency. Federal agency requirements are only fulfilled when an ordering activity places an order through procedures established by FAR Part 8.4. Because specific Federal agency requirements are not identified, estimated or managed at the MAS program level, it is impossible to accurately quantify the benefits of this action as a percentage of estimated value.

Alternatively, the MAS PMO has identified sufficient justification for this action through the identification of other specifically identified benefits that are considered substantial and will be realized by the following stakeholders: Eligible users of the MAS program (customers), current and prospective Schedule contractors, including small businesses (Industry), and Federal Government (GSA).

The benefits that will be realized as a result of the MAS consolidation effort include quality improvements that will save time and improve efficiency, a reduction in acquisition cycle times, and improved terms and conditions for the MAS program. The benefits are outlined below for each key group of stakeholders:

● Eligible Users of the MAS program (customers):

○ Elimination of multiple items from the same company on various contracts assigned to various Schedule solicitations. Consolidating the Schedule solicitations will allow customers to access the full breadth of a contractors offerings under a single order. This will reduce the complexity of placing orders across several different Schedules with varying terms and different MAS CO’s. This will result in more consistent terms and conditions across the order, a reduction in the acquisition cycle time necessary to place the order, and an overall reduction in acquisition costs.

○ Establishing a more logical structure for MAS offerings will make products and services easier to find, resulting in an increase in the efficiency and effectiveness of market research and other acquisition activities. This will increase the ability of customers to procure total solutions under a single order and lead to an overall reduction in acquisition costs.

○ Overlapping SINs for the same/similar items will be consolidated under the new structure, this will result in an increase in the effective identification of qualified vendors and an increase in competition at the order level. This will further lead to a decrease in overall acquisition cost due to increased efficiency and reduced price for MAS products and services.

○ In conjunction with the consolidation of the MAS solicitations into a single solicitation, the GSA is working to gather, consolidate, and standardize terms, conditions, policies and processes governing the administration of the MAS program. This will result in an improved, standardized and consistent set of policies and procedures resulting in more effective administration of orders across the MAS program. This will lead to an overall reduction in acquisition costs as a result of the improved efficiency for customer acquisition activities.

● Current and Prospective Schedule Contractors Including Small Businesses (Industry):

○ Currently, contractors may have to propose several Schedule contracts under several solicitations and even establish a CTA agreement to partner with themselves in order to offer the full breadth of their commercial products and services. Under the new structure, contractors may propose items under all SINs through the administration of a single MAS contract. This will result in increased small business participation across all SINs, increased efficiency in the management of MAS offerings, and a reduction in administrative costs for industry.

○ Currently, opportunities for small business set-aside SINs are identified through the analysis of 24 individual solicitation managers. Centralized solicitation management will allow for more efficient identification of future opportunities for small business set-aside SINs.

○ Under the new MAS program structure, contractors will have a single contract with a single CO. This approach is more in-line with commercial practices and will result in improved consistency of terms and conditions, an increased efficiency in the management of MAS offerings and a reduction in administrative costs for industry.

● Federal Government (GSA):

○ As a result of the overall benefits outlined above, increased customer and industry satisfaction will lead to an increase in utilization of the program and more effective recovery of the costs associated with administering the MAS program.

○ Under the new MAS program structure, contractors with a single contract with a single CO will improve consistent application of terms and conditions, increase efficiency in the management of MAS offerings and reduce administrative costs for GSA.

○ As a result of the improved efficiency and reduced level of effort, GSA can more effectively leverage and utilize agency personnel.

○ As a result of this initiative, the overall number of MAS contracts will be reduced while maintaining the currently available supplies and services. This will allow GSA to manage the same vendors offering the same items while reducing the overhead costs necessary to manage these items.

○ Currently, Schedule solicitations are managed by 24 assigned Solicitation Managers.

Consolidating the solicitation will allow for a single solicitation management activity which will result in a reduction in the overall acquisition costs and an increase in the quality and consistency of the MAS program terms and conditions.

○ The new, consolidated solicitation structure will allow for more effective training of MAS contracting personnel on a wide variety of commercial supplies and services across the MAS program. This will lead to increased flexibility in the MAS workforce and will allow GSA to more effectively manage MAS workload, shifting resources as needed.

As previously stated, the substantial benefits of implementing this initiative are not quantifiable and cannot be reasonably estimated in a specific dollar amount; however, the benefits of this approach will substantially exceed the benefits that would be derived from each of the alternative contracting approaches. In addition, MAS Consolidation is a key element in GSA’s plan to modernize and simplify the buying and selling experience for customers, suppliers, and acquisition professionals through the FMP Strategy. This initiative is critical to the success of the agency’s mission to deliver value and savings in real estate, acquisition, technology, and other mission-support services across government.

Because this initiative to consolidate the 24 MAS solicitations will not result in an individual, defined contract award with an established period of performance, the requirements outlined in GSAM 507.107-1

(g) to monitor and measure actual savings throughout the acquisition life cycle and report realized substantial benefits to the SPE do not apply.

SECTION X - APPROVALS

See Attached PDF