Assessment of Performance-Based Contracting

Transcription

1 Assessment of Performance-Based Contracting Presented to: 2007 REGION 4 ENVIRONMENTAL PROTECTION AGENCY / DEPARTMENT OF DEFENSE / STATES / ENVIRONMENTAL CONFERENCE Date: June 20,2007 Authors: Jon Horin, Cathy Vogel, Fred Price, Bob Edwards Noblis 2007 Noblis, Inc.

2 Introduction Performance-Based Contracting (PBC) vs. Other Contract Vehicles Criteria for Determining When to Use PBC Achieving Best Value With PBC Evaluating Strength of PBC Offerors Lessons Learned from Past PBC Efforts Key Information Sources 2

3 PBC vs. Other Acquisition Approaches With PBC, the Air Force buys results instead of compliance, and contractors have maximum flexibility to select and implement the best practice to achieve the goal Air Force shares the risk with the contractor in order to encourage accelerated completion of goals Contract Type Time and Materials Cost Plus Fee Process Oriented Firm Fixed Price Performancebase Firm Fixed Price Risk to Contractor Completion Incentive Sites Best Suited to This Situation Low Low Poorly Characterized or Variable Scope Low to Medium Medium Poorly Characterized or Variable Scope Medium High Well Characterized with Firm Objectives Medium to High High Well Characterized with Firm Objectives Hours Worked at Set Rates Typical Payment Format Payment for Costs Incurred Payment Linked to Completion of Scope Payment Linked to Performance Objectives 3

4 Criteria for Determining When to Use PBC Possible PBC Criteria Include: Extent of site characterization Degree of regulator support Flexibility of legal agreements Clarity and achievability of government goals Adequacy of time for preparation and award of contract Impact on the government of failure Grouping sites for PBC results in risk acceptable to contractors and government 4

5 Achieving Best Value With PBC Review the draft Statement of Objectives (SOO) to determine: Clear, measurable objectives and goals Potential for modifications Financial requirements Consider additional factors such as previous experience with fixed-price contracts, and innovative solutions The solicitation must require that the offeror propose a clear and comprehensive explanation of what will be accomplished and in what amount of time for a fixed amount The Independent Government Estimate (IGE) should be in line with the cost to complete (CTC); the offeror s proposed cost should be in line with these numbers. Large deviations should be evaluated 5

6 Evaluating Strength of PBC Offerors Evaluation factors can include: Contractors Qualifications Financial resources Financial stability Staff qualifications Past performance Technical approach Risk of Proposed Approach Financial risk mitigation through: Contingency planning Teaming arrangements Environmental insurance» Cleanup cost cap» Pollution and legal liability Proposed Milestone and Payment Schedules Cost/Price 6

7 Financial Stability The Federal Acquisition Regulation (FAR) states Purchases shall be made from, and contracts shall be awarded to, responsible prospective contractors only An offeror must have adequate financial resources to perform the contract or the ability to obtain them to be determined to be responsible 7

8 Evaluating Financial Stability FAR Section Standards An offeror must have a satisfactory record of integrity and business ethics to be determined to be responsible An offeror must have the necessary accounting and operational controls Special standards can be developed and set forth in the solicitation 8

9 Financial Requirements for Small Businesses Small businesses found "not responsible" (i.e., unable to achieve the minimum financial requirements) are referred to the Small Business Administration (SBA) SBA conducts further assessment SBA can issue a Certificate of Competency (COC) if the small business is found to be competent, preventing elimination on the basis of nonresponsibility 9

10 PBC Execution with Insurance: Cost Elements Insurance Coverage Guaranteed Fixed Price Remediation (GFPR)/PBC Government Cost Co-Pay 10-15% Insurance Claim Payment Deductible 15-20% Insurance Premium 10-15% Contingency 10% Fee and Overhead Cost Cost risks determined by Monte Carlo analysis by contractor and insurance vendor Contingency calculated to cover 98% probability of completion. Insurance kicks in at 99.9% probability of completion. Co-pay influenced by exclusions 10

11 PBC Execution with Insurance: Dollars vs. Time Best Outcome $ Government Payments Time 11 Contractor Share Expected Completion of Remediation Goals Period of Performance/ Term of Insurance

12 PBC Execution with Insurance: Dollars vs. Time (Continued) $ Expected Outcome with Insurance Insurance Payments Government Payments Time 12 Contractor Share Expected Completion of Remediation Goals Period of Performance/ Term of Insurance

13 PBC Execution with Insurance: Dollars vs. Time (Concluded) When Things Go Wrong $ Insurance Payments Government Payments 13 Contractor Share Expected Completion of Remediation Goals Time Period of Performance/ Term of Insurance

14 Lessons Learned from Past PBC Efforts Select sites for PBC only after careful analysis must be sufficiently characterized Involve the installation staff early in the process Dense, non-aqueous phase liquid (DNAPL) in groundwater may be difficult for PBC because it is hard to achieve site closure soil contamination often presents less uncertainty Remedial Process Optimization analysis prior to PBC acquisition primes the pump for innovative solutions SOO must have clear and achievable objectives (reflected in the Quality Assurance Surveillance Plan [QASP]) and milestones, but must also allow the contractor adequate flexibility to encourage innovative proposals Significant payment must be reserved for final milestone to maintain completion incentive 14

15 Lessons Learned from Past PBC Efforts (Concluded) Provide for adequate time and resources for the acquisition effort Participation of Major Command and Installation staff is critical to the success of PBC Regulator response or input is desirable during the solicitation process Post-award efforts must begin immediately and require Air Force involvement Soon after award, the PBC contractor should meet with Installation staff and regulators Air Force must have current knowledge of ongoing efforts by contractors and should not be surprised by contractor actions 15

16 Key Information Sources Environmental Restoration Performance-Based Contracting Guidebook, US Air Force Office of the Civil Engineer, Air Force Center for Environmental Restoration, December Environmental Restoration Performance Based Contracting (PBC) Concept of Operations, Air Force Center for Environmental Excellence, Final, 22 February US Army Environmental Center Performance-Based Contracting Guidebook, rev. 1, 27 January Use of Environmental Insurance by the Military Departments, Department of Defense Office of the Inspector General (D ), 27 April Memorandum from SAF/IEE Air Force Cleanup Program Performance- Based Management Policy, 27 October Memorandum from HQ USAF/ILEV Performance-Based Contracting (PBC) Guidebook, containing goals for percentage of PBC contracting each fiscal year and PBC goal calculation guidance, 22 December

17 Environmental Restoration Performance Based Contracting (PBC) Concept of Operations pbc/insurance.asp ds/afcee%20pbc%20conops%20final%20v2.1% pdf 17

18 Summary PBC is one option for environmental contracting but is not always the best approach and must be evaluated in each instance The acquisition process can take longer for PBC but is a critical step for success A PBC contract may be awarded on best value, not simply lowest cost 18

19 Summary (Concluded) Best value is established based on consideration of a variety of factors The financial strength of an offeror should be considered to reduce failure due to risk Future PBC should take advantage of the lessons learned in past and ongoing PBC efforts. 19