Attach L-09 - IRES TO Award-Modification Process.docx

IRES

Integrated Research & Development for Enterprise Solutions

Attachment L09:

Task Order Award and Modification Process

H95001-15-R-0001 Attachment L-09 H95001-15-R-0001 Attachment L-09

May 10, 2016

Preface The processes defined in this document are applicable to new task order awards and significant task order modifications. The processes are intended to provide a consistent customer experience when placing requirements on the IRES contract. The processes are not intended to be burdensome; the processes will result in the generation of required, valued-added documentation.

Numerous existing task order award / modification processes were examined and integrated into this document, capturing the optimal features of all while ensuring the necessary artifacts are generated at the proper time in the acquisition process.

Change History

Original

Table of Contents

List of Exhibits

Page i May 10, 2016 Page iii Purpose This document establishes the framework for adding or modifying task orders under the IRES contract. Two processes are presented: the Integrated Team Process (ITP) and the Traditional Process.

The ITP includes the contractor in the refinement of the requirement, development of the performance work statement (PWS), and determining the workforce / PWS execution requirements. This ‘alpha-like’ process should result in reduced timelines and eventually reduced proposal development costs.

The Traditional Process relies on the government requirement owner expertise to fully develop the performance work statement prior to contractor involvement.

It will be up to the Program acquisition team to determine which process best meets the needs of the stakeholder.

Applicability The processes defined in this document are applicable to all new task orders and bilateral task order modifications issued on the IRES contract.

The value of defining and adhering to standardized, deployed processes is multifold:

· Stakeholders know what to expect, which is essential to effective planning.

· Consistency in the service delivery model is a key element in customer satisfaction.

· The contractor knows how to respond, and therefore can streamline their processes.

· The task order award and modification processes can be systematically evaluated and improved.

Roles and Responsibilities Adding or modifying a task order is a team effort; the IRES program management organization will assist stakeholders through the acquisition process. The primary roles and responsibilities of the key participants are described in this section. This section does not attempt to identify all responsibilities.

IRES Functional Services Manager: Provides oversight and management of the contract(s), and serves as the initial stakeholder liaison (i.e., if a stakeholder has a new requirement, discuss it with the PM first to ensure IRES is the optimal contract vehicle to satisfy the requirement).

Procuring Contracting Officer (PCO) Team: (includes PCO, Contracting Director/Deputy Director and Specialists): The PCO Team serves as advisors to the program manager; administers the contract; negotiates and awards task orders and contract/task order modifications; ensures all applicable laws and regulations are met; and that business outcomes are fair and reasonable.

Acquisition Support Team: The Acquisition Support Team consists of Acquisition Managers (or Analyst), Cost Estimators and Data Managers.

Acquisition Manager (or Analyst): The Acquisition Manager (or Analyst) will serve as the coordinator and facilitator of the acquisition process, guiding and assisting stakeholders, providing business acumen, acquisition expertise, and quality control of the acquisition documents and artifacts.

Cost Estimators: The Cost Estimator will apply the necessary rigor and standardization to developing estimates. Cost estimates will consist of did cost, will cost and should cost exhibits.

Data Manager: The Data Manager will assist in the definition of CDRLs and approval of standard form 1423.

Stakeholders / Contracting Officer Technical Representatives (COTRs): The process only exists to service the needs of the stakeholders (the requirement owners). COTRs define the initial statement of need that will initiate the acquisition process. Active participation of the Stakeholder and the COTR is essential, and is on the critical path of the acquisition schedule; failure of the Stakeholder and the COTR to actively engage will prolong the acquisition timeline.

IRES Contracting Officer Representatives: The Contracting Officer Representatives (CORs) primary acquisition responsibilities are to address risks and impacts to existing work. The CORs will also support the acquisition team in the development / refinement of the quality assurance surveillance plan (QASP).

Integrated Requirements Review Board (IRRB): The IRRB ensures a program-level perspective is applied to the task orders issued under the IRES contract. The purpose of the IRRB is to identify prospective overlaps, opportunities for synergy, and potential schedule or resource conflicts.

Contractor: Whether an active participant in the ITP, or the responder to requirements in the traditional process, the contractor plays a vital role. Specifically, the contractor must provide an integrated, program-wide perspective when responding to requirements. The contractor must identify risks, dependencies, and opportunities for synergies between task orders.

The Acquisition Team will be appointed, by name, at the start of the task order award / modification process. Government team members consist of the Stakeholder / COTR, a PCO, a Contracts Specialist, an Acquisition Manager (or Analyst), the COR, and members of the Acquisition Support Staff, as necessary, to assist in the development of the acquisition artifacts that become part of the task order requirements package. Contractor team members, empowered to make decisions, are to be identified by the contractor. The Program Manager is not part of an acquisition team; the Program Manager must remain a neutral observer and advisor.

Overview Identifying the need and socializing the need with the IRES program management organization constitutes entry into the acquisition process. The following paragraphs highlight the similarities and differences between the ITP and traditional process.

· Both the ITP and traditional processes require the Government Stakeholder (requiring agent) to provide funding (a minimum of 10% of the government estimated cost) in advance of the anticipated task order award (or modification) prior to the contractor incurring bid and proposal costs. The ITP requires funding much earlier in the process (completion of Step 1 [reference section 5]), while the traditional process does not require funding until near the very end (completion of Step 3 [reference section 6]). Note: Both processes require a minimum of 4 months funding prior to award.

· Both processes require the development of a task order requirements package (TORP) (TORP checklist provided in Templates); responsibility for development of the TORP contents, however, differs. Specifically, most sections of the TORP developed during the ITP are co-authored by the Government-Contractor team, whereas most sections of the TORP developed during the traditional process are authored solely by the Government.

· Both processes require the contractor to develop and submit a proposal, however the contractor’s response timeline differs significantly. The ‘ITP proposal’ will be submitted within five (5) business days after issuance of the RFP whereas the ‘traditional proposal’ will be submitted within twenty (20) business days after issuance of the RFP.

· Both processes follow the ‘normal’ contracting process for proposal evaluation, negotiations, and task order award. The ITP should result in shorter, more streamlined negotiations.

Metrics will be maintained to determine the most cost-effective process, both in the terms of Government man-hours and contractor hours and direct costs.

Integrated Team Process (ITP) The ITP Task Order award / modification process is based on the essential concept of achieving a win-win outcome during the acquisition process. All parties must be forthright, professional, and most importantly, empowered to make real time decisions.

The goal of the ITP is to establish an open and effective line of communication between the Government and Contractor that promotes and enhances the way requirements are identified; proposals are prepared and evaluated; negotiations are conducted; and task order award or modifications are issued. The concepts contained herein are provided to improve the commitment, communication, and cooperation necessary to fulfill the requirements that support the respective mission. These include, but are not necessarily limited to:

Commitment

Communication

Cooperation

ITP Summary Exhibits 1 and 2 provide an overview of the ITP steps and product development responsibility. This guidance is purposefully general in nature as the method(s) for achieving the result of each step may vary based on the unique circumstances of the requirement. Consistent application of the process (or documented deviations from the process), however, will enable the Government to systematically improve the process.

The strategic premise of the process is open interaction and collaboration between the Government and contractor. Potential benefits of the ITP include:

Exhibit 1. Overview of the Integrated Team Process

Exhibit 2. ITP Product Development Responsibilities

Step 1 Identify Need The Government stakeholder is responsible for identifying a need and working with the IRES program management organization to develop the Statement of Need. Upon IRES PM approval of the Statement of Need and appointment of the acquisition team, the contractor will be authorized by the PCO to work with the government to establish the ITP; it is at this point the contractor will be authorized to incur bid and proposal costs.

For new task orders, a COTR will be nominated and appointed before proceeding to step 2.

The purpose of the initial needs assessment is to refine the requirement definition and identify a preliminary technical solution and associated risks. The preliminary technical solution should be of sufficient detail to allow 1) the government to develop an independent cost estimate and 2) the contractor to develop a ROM.

The initial needs assessment is performed by the ITP; the COTR is the ITP chair, and the Acquisition Manager (or Analyst) serves as the facilitator and secretariat.

If the action is for a new task order, the ITP membership consists (at a minimum) of the Government Acquisition Team and the Contractor’s Program Manager (or their delegate) and technical subject matter expert(s).

If the action is for a task order modification, the ITP membership (at a minimum) consists of the Government Acquisition Team and the Contractor Task Order Lead.

The ITP members develop the draft task order PWS or modifies the existing PWS to reflect the new (or changed) work. The ITP members also draft the IRES Requirements Review Board (IRRB) briefing. The Acquisition Manager (or Analyst) is responsible for ensuring the completeness of the draft IRRB briefing.

Development of initial cost estimates (did cost, will cost, should cost) is not an ITP activity; independent estimates are developed by the Government and the Contractor.

The COTR, with assistance from the acquisition support staff, is responsible for approving the Independent Government Cost Estimate (IGCE). The IGCE must identify the labor categories, anticipated labor hours, travel, equipment, and other anticipated costs. In the event of a task order modification, the IGCE must also capture impacts or changes to existing work.

The IGCE is submitted to the Acquisition Manager (or Analyst) for incorporation and finalization of the IRRB / Acquisition Strategy Briefing.

The purpose of the IRES Requirements Review Board (IRRB) is to provide a program-level perspective to the task orders issued under the IRES contract. IRRB membership consists (at a minimum) of the IRES Functional Services Manager (chair), all IRES PCOs, all IRES CORs, and the Contractor’s Program Manager. This group has purview over all the task orders issued on the program and therefore is in a position to identify prospective overlaps, opportunities for synergy, and potential schedule or resource conflicts. The COTR will present the Final IRRB / Acquisition Strategy Briefing to the board for discussion and approval to proceed.

The IRRB Secretariat (a COR or support staff) is responsible for maintaining the IRRB portal, developing meeting minutes, and tracking action items.

To streamline schedules and ensure availability of the entire IRRB, meetings will be conducted on a regular schedule (e.g., the second and fourth Wednesday of every month). All material that is to be discussed at the IRRB will be posted to a portal site a minimum of two (2) workdays prior to the meeting.

ITP members develop the optimal approach (PWS) to best meet the requirement; additional team members (subject matter experts) from both the Government and contractor may be required during this step. It is the COTR’s responsibility to keep the team size to one that is both productive and cost effective. The PWS is a requirements document that will become contractually binding.

The team focusses on reaching a consensus for the optimal technical solution, including labor / skill requirements, PWS revisions, deliverables, schedule (and schedule impacts), assumptions and risks, and other factors that will form the basis for the contractor’s proposal. The Acquisition Manager (or Analyst) will serve as facilitator and recorder of the ITP session(s), detailing the process and discussions that lead to the proposal establishment.

The documentation developed during this step will complete the Task Order Requirements Package (TORP) necessary for the “normal” contracting process.

NOTE: The ITP is dissolved upon successful completion of Step 5.

Step 6 Issue Request for Proposal (RFP) Upon receipt, acceptance, and approval of the TORP, the PCO will issue an RFP to the contractor.

The contractor will have five (5) business days to submit the proposal (unless otherwise agreed to by the ITP).

The “normal” contracting processes are conducted in accordance with the FAR, DFAR, MDA Polices, etc.

The COTR is essential to the PCO team being able to complete the “normal” contracting processes, and must be responsive to PCO questions and direction. Specifically, the COTR must 1) develop the Government Technical Evaluation of the contractor’s proposal; 2) provide appropriate funding documentation; and 3) be available to support negotiations (if necessary).

Traditional Process The traditional task order award / modification process should be considered when task order requirements and outcomes are well defined and require limited discussions with the contractor. The traditional process requires the Government Stakeholder (requiring activity) to fully develop the IRES Requirements Review Board (IRRB) / Acquisition Strategy Briefing and Task Order Requirements Package without input from the contractor. The Contractor is not involved in the acquisition process until issuance of a request for proposal.

Traditional Process Summary The traditional process relies on Government expertise and manpower to fully develop the performance work statement and Task Order Requirements Package; IRES contractor interaction or discussion is not permitted until Step 4 – issuance of the RFP. Exhibits 3 and 4 provide an overview of the traditional process steps and product development responsibility.

Exhibit 3. Overview of the Traditional Process

Exhibit 4. Traditional Process Product Development Responsibilities

Step 1 Initiate Acquisition Strategy Discussions The Government Stakeholder is responsible for identifying a need and working with the IRES program organization to develop the Statement of Need. Upon IRES PM approval of the Statement of Need, an Acquisition Team will be assigned.

For new task orders, a COTR will be nominated and appointed before proceeding to step 2.

Development of the Task Order Requirements Package (TORP) is the responsibility of the COTR, with support of the Government Acquisition Team, as requested. The assigned Acquisition Manager (or Analyst) will certify that the TORP is complete and the requirement is ready for presentation to the IRRB.

Reference ITP Steps 3 and 4.

Step 4 Issue Request for Proposal (RFP) Reference ITP Step 6.

Step 5 Contractor Proposal Development The contractor will have fifteen (15) business days to submit the proposal (unless otherwise agreed to by contractor).

Reference ITP Step 8.

Approximate Process Timelines The timelines associated with each step of the processes can be considered the nominal number of business days to complete, and are provided for acquisition planning and scheduling purposes only. The acquisition timeline starts with successful closure of all IRRB action items.

· The nominal timeline when employing the ITP is 36 to 51 business days.

· The nominal timeline when employing the traditional process is 66 to 81 business days.

There is opportunity to reduce the number of days associated with both processes.

Process Review / Improvement Upon award of the task order or task order modification, the Acquisition Manager (or Analyst) will conduct an exit survey of all participants to identify potential opportunities for improvement. The IRES program office will analyze survey results, and recommend changes to the process and process products as necessary.

All templates will be maintained on the IRES portal.

Templates Task Order Requirements Package (TORP) Checklist / Contents Statement of Need Template ITP Charter COTR Nomination Letter COTR Appointment Letter IRES Requirements Review Board (IRRB) / Acquisition Strategy Briefing Template Government Cost Estimate Template Government Technical Evaluation Template Quality Assurance Surveillance Plan (QASP) Template Performance Work Statement Template CLIN Structure Checklist May 10, 2016 Task Order Requirements Package (TORP) Contents

ITP

Process Step

Traditional

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