Gov Contracts

8/3/2019 Gov Contracts

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Contracting OfcerContracting OfcerRepresentatives:Representatives:

Mana ging the Govern m ents

Technical Experts to Ach ievePositive Contract Outcom es

A Repor t to the President and Congre ss of the United States

by the U.S. Merit Systems Pro tection Bo ard


2/87

THE CHAIRMAN

U.S. MERIT SYSTEMS PROTECTION BOARD1615 M Street, NW

Washington, DC 20419-0001

December 2005

The President

President o the Senate

Speaker o the House o Representatives

Dear Sirs:

In accordance with the requirements o 5 U.S.C. 1204(a)(3), it is my honor to submit thisU.S. Merit Systems Protection Board report, Contracting Ofcer Representatives: Managing the

Governments Technical Experts to Achieve Positive Contract Outcomes.

Without question contracting is an appropriate and eective way to accomplish an important

share o the Governments work. The volume o contract spending$328 billion in fscal year 2004,

up 87% rom FY 1997demonstrates the importance o developing and managing Federal contracts

in ways that will ensure the best contract outcomes and the best return on the taxpayers dollar. In

recent years, the Government has modernized its contracting rules and procedures and improved

the management o contracting ofcers who carry out the business aspects o contracting. However,

almost no work has been done to assess agencies management o contracting ofcer representatives

(CORs). These individuals provide the technical expertise necessary to convey the technicalrequirements o the Government, oversee the technical work o the contractor, and ensure that

deliverables meet the technical requirements o the Government. Even the best managed contract is

not successul i its deliverables ail to meet the technical requirements o the Government.

This report provides fndings and recommendations based on our survey o CORs rom 10

agencies that accounted or 90% o the Governments contracting dollars. These highly experienced

CORs provide a compelling and authoritative perspective on contracting and on how they can be

better managed to ensure positive contract outcomes. The report includes recommendations on

managing CORs that are empirically related to more positive contract outcomes in terms o the

quality, completeness, timeliness, and cost o deliverables. Agencies need to do better at ulflling the

regulatory requirements or managing CORs and manage them better on a day-to-day basis so thatCORs can do their part in ensuring positive contract outcomes.

I believe you will fnd this report useul as you continue your eorts to improve how

contracts are developed and managed, and thus improve contract outcomes on behal o the taxpayer.

Respectully,

Neil A. G. McPhie


3/87

Contracting OfficerRepresentatives:

Managing the Governments Technica Experts

to Achieve Positive Contract Outcomes

Contracting OfficerRepresentatives:

A RepoRt to the pResident And

the CongRess o the United stAtes

by the U.s. MeRit systeMs pRoteCtion boARd


4/87

U.S. Merit Systems Protection Board

Neil A.G. McPhie, Chairman

Mary M. Rose, Vice Chairman

Barbara J. Sapin,Member

Office of Poicy and Evauation

DirectorSteve Nelson

Deputy DirectorJohn Crum, Ph.D.

Project ManagerDeeAnn Batten, Ph.D.

Project AnalystsPaul van Rijn, Ph.D.Sharon RothCynthia Ferentinos, Ph.D.


5/87

Tabe of Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

our . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Rcmma maa CoR mr cvl . . . . . . . . . . . . . . . . . . . . v

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Rc r crac . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

W w cuc u . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Ml . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Contracting and the Roe of CORs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Wa crac? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

t crac rc a rl CoR . . . . . . . . . . . . . . . . . . . . . . . . 11

Cclu . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

CORs and the Contracts on Which They Work. . . . . . . . . . . . . . . . . . 19

CoR ar vr xrc ral/ccal ml . . . . . . . . . . . . . 19

CoR wrk a cmlx crac vrm . . . . . . . . . . . . . . . . . . . . 20

Crac ucm: m l . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Cclu . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

How CORs Are Managed . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

ulll rular rqurm r maa CoR. . . . . . . . . . . . . . . 27

Maa CoR a--a r crac wrk . . . . . . . . . . . . . . . 38

Cclu maa CoR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Recommendations to Improve COR Management . . . . . . . . . . . . . 49

Wa ul CoR ? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Wa ul ac ? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

Wa ul lcmakr ? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

summar . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Appendix A: Study Methodoogy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Appendix B: Survey Instrument . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

A Report by the U.S. Merit Systems Protection Board


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Executive Summary

there is no question that contracting is an eective and efcient way to accomplish asignifcant share o the Governments work. While there may be disagreement over whatis contracted and why, everyone can agree that contracts must be developed and managed

well to ensure positive contract outcomesdeliverables that meet Government requirementsor quality, completeness, timeliness and cost. This report concerns the role o contracting ofcerrepresentatives (CORs)the Governments technical experts who are responsible or developing

and managing the technical aspects o contracts. We surveyed CORs rom 10 agencies thataccounted or 90 percent o the Governments contracting dollars. Based on the fndings romthis survey, we make recommendations or agencies to improve the regulatory and day-to-daymanagement o CORs. In particular, agencies need to ulfll the regulatory aspects o managingCORs to include ormal delegation o authority, improved COR training, and strategicmanagement o the COR workorce. Agencies also need to improve the day-to-day managemento CORs. These day-to-day issues include improving COR selection and assignment, ensuringCORs begin early in the contracting process, ensuring CORs perorm critical pre-award technicalcontracting tasks, ensuring CORs have enough time to do their contracting work, rating CORson the perormance o their contracting work, and considering the other Federal employees who

aect the CORs contracting work. Fulflling the regulatory requirements or managing CORsand managing CORs more eectively day-to-day are signifcantly related to more positive contractoutcomes. Taking these steps will help ensure that the over $325 billion spent on contractingachieves eective and efcient results or the taxpayer.

t ll llar a ral ac auall urca ruc

a rvc rm cracr a am ac a gvrm

crac a arra a cv wa accml a ca ar

wrk. t vlum crac $328 ll y 2004,1 u 87

rc rm arxmal $175 ll y 1997al mra

crcal mrac vl a maa ral crac wa a

wll ur crac ucm a rur axar llar.

hw ca ral ac ulll ulc xca a r w r

crac lvral urca ruc r rvca m gvrm

rqurm r qual, cml, c, a ml?2 Wll-vl a

A Report by the U.S. Merit Systems Protection Board i

1 tal amu crac valu vr $25,000 ac.

2 t ral Acqu Rula (AR), tl 48 C ral rula, Car 1,sc 1.102() w cml a a a ur ucm.


7/87

ii Contracting Officer Representatives

wll-maa crac arra a raar rul a rcur, lu

a ral crac wrkrc a ca cvl al m. i rc ar,

gvrm a mrz crac rul a rcur r ur

vr-cra u cl a kwl-a wrk, a wll a

alac r fxl a accual.

Cral r a al ma mrv ac maam rcrac cr (Co), w carr u u ac crac.

hwvr, rm a u rcv, v maa crac

uccul lvral al m ccal a rram rqurm. d

mrav, alm wrk a a ac maam

CoR ml w rv ccal xr car clarl

cv gvrm ccal rqurm; vr ccal wrk

cracr; a ur a lvral m ccal rqurm

gvrm.

t ur u wa xam CoR a rcmm w

ca r maa ur v crac ucm.3 i 2003, U.s.Mr sm prc bar (Mspb) urv a aml cvla CoR rm

10 ac a a arxmal 90 rc gvrm y 2000

crac llar. t CoR w r av u rma au r

uca, r ccal wrk, r ra ral crac,

crac wrk , a w r ac maa m rrmac

r crac wrk. our urv al ak CoR au r crac qual,

cml, ml, a c lvral, a w cul rm wc

CoR maam racc wr rla v crac rul. CoR rv

a cmll a aurav rcv ral crac, a r urv

r rv rma wc w a ur rcmma.

Our findings

CORs are very experienced empoyees working in acompex contracting environment

t CoR ur u wr l uca, wll a ral cvla ml

rv l ra, -urvr, ral a ccal ccua.

tr r ca a ar vr xrc a ral ml a

a CoR. t rqul wrk a l cmlx crac vrm, a

m aar av luxur calz crac. i

2 ar rr urv, r crac vlv mull ruc a rvc

wr am crac r mulau cracra rm cmmrcal

--l ruc ral cul rarc a vlm

Executive Summary

3W u CoR a Crac ocr tccal Rrav (CotR). eml wrk ma av r l m ac. i rr, w rr a CoR.


8/87

A Report by the U.S. Merit Systems Protection Board iii

Executive Summary

rvc. M CoR wr call vlv mulaul crac w

r rc arram. t rc arram cul ra rm ml

x-rc crac c-rmural r rrmac-a crac. ovr

al call wrk crac $1 mll r l, a au -quarr

crac $5 mll r mr. Au al wrk crac 4 r mr

ar ura. t l cmlx crac vrm lac ca

ma CoR, mak v mr mra r ac maa rCoR wll ca r ar acv v crac ucm.

Not a contracts succeed, and simpe contractsare not necessariy more successfu

t acra ac ra r CoR maam, w ak CoR

ra r crac lvral a wr wr qual, cml

m, cml w um, a lvr a a ar a raal c.

Au 52 rc r CoR ar r rl ar a r

lvral a acv all ur crac ucm mulaulwcma a arl al CoR xrc l a ucm a

la ucm car.4

Accr ur aa, mlr cracuc a w l x rc

carl av r ucm. Crac ucm wr rla

ruc r rvc urca r rc arram

crac. Lr crac wr rla r qual ucm, a lr

crac wr rla r qual, mr cml a mr ml lvral.

t ca a r mrv crac ucm ca

crac, r xaml mr rarwar cmmrcal x-

rc crac, wll lkl av a uaal mac crac ucm.

Many aspects of managing CORsare reated to more positive contract outcomes

W lk a w k ac CoR maam wa maa

CoR ca r crac wrk mr cvl a u acv

mr v crac ucm. W r xam rular rqurm

r maa CoR, clu rmal la aur CoR

Co, ur a CoR arra ra crac, a rac

maam CoR wrkrc. sc, w u a--a maaral

c, clu w CoR wr lc, w r cm vlv w

a arcular crac, a wa crac ak wul rrm a crac.

W al lk a ur CoR av u m r r crac wrk a

a ra m r rrmac r crac u. all, w lk

a c CoR r ral ml w wm CoR wrk

rrm r crac u.

4 d a 100 rc u ru.


9/87

iv Contracting Officer Representatives

Executive Summary

Reguatory requirements for managing CORs.t ral AcquRula (AR) rqur Co rmall la aur CoR r

ac crac. t ur a CoR ar ull awar wa mu

a wa ca a arcular crac. hwvr, l au al ur

CoR rr a wr alwa rmall la aur rrm

r crac wrk. ev mr rul, au 25 rc a a vr

rmall la r CoR aur. t ak v mrmrac cau CoR w wr rmall la r aur al rr

mr v crac ucm.

W ak au r crac ra, CoR r w a mr

ra m crac c (.., c rqurm, r a

) a a v mac crac ucm. tra m crac

c mrv crac qual, cml, a c, wl ra m

r crac c mrv l r w crac ucm.

Mr ra CoR ccal/ucal ara a mr ra ral

cmc (.., cmmuca kll r rral rla) al rla

r crac ucm. W ak au r ra , mr CoRrr ra r ccal/ucal ara a a r c.

hwvr, arxmal al CoR rr ca ra alm

vr crac c a ac ral cmc. Mr mral, v

CoR w 6 r mr ar xrc a a CoR rr mra r ca

ra ma araca a ac ca rv ra

l c a xc CoR maa r cmc. all, CoR rr

a m uul m ra wr wc av m cac

rac w r xrc CoR, Co, a maar. t la uul ra

m wr cmur-a ra r l-ac lar. t

ca a ac cu r CoR ra rurc r

uav ara a lvr ra wa a wll ur cv rur.

oc Maam a bu (oMb) lc rqur ac ac

a racall maa CoR wrkrc. t ur a ac av

a wll uur avu CoR w r kll ac

curr a uur crac wrk. t , ac mu al

a lca r CoR a k rack r cmc. Urual, wl

cuc u, w u a ma ac wr al ral

r lca r CoR, r accural rack r ra r kll. Ac mu

vrcm maam call r CoR wrkrc uc

m gvrm r a uur .


10/87

A Report by the U.S. Merit Systems Protection Board v

Executive Summary

Day-to-day management of CORs. Varu a--a maaral ac ca

ur a CoR av rucur a maam ur rm r

ac. CoR w lv a wr lc a a r ac

a r ucal/ccal xr a r kwl crac al

rr r crac ucm. hwvr, ma ac av cc

uac r crra r lc CoR. bcau mrac CoR wrk,

ma aval r ac al mr rmal crra r CoR lcrar a lav rc cac. i a, ur aa ca a w

CoR r vlvm a arcular crac arl crac

rc, rr r crac ucm a r wrk ar

crac wa awar. W CoR ar vlv arl rc, ar r

al ur a crac clarl u ccal rqurm. t

l CoR maa crac c awar.

W ur CoR wr vlv r-awar a -awar ccal

ak crac, rr r crac ucm. i a, w

CoR rcv a u m r r crac wrk, rr

r ucm. irl, a larr rr r m wrk crac la rcl rr mrv crac ucm. i

wa CoR rc av u m a wa u. t ma

a ac cmmuca w CoR au r m a

l CoR alac r crac a -crac wrk ur CoR

ca v uc m r crac. CoR w rr a r ac

ra m rrmac r CoR u al rr r crac

ucm. i a, CoR rac w Co, ac maar a all lvl,

a w r ral ml wrk crac ac w wll ca

r j. W u a w CoR a v rc ru

.., rc a ru wr cm, cal, a urv

CoRCoR al rr r crac ucm.

Recommendations to manage CORs more effectivey

Ac av rmar rl r ur a CoR ar maa wll.

A, w ac, vral ru l ar rl r maa

CoR. t ru clu Co, CoR urvr, rram r l maar,

r ac lar, ac rcurm maar, a ac uma rurc

(hR) maar. CoR ca al ak cra ac l mlv rrm r

crac wrk mr cvl. i a, gvrmw lcmakr av

a mra rl rm cv lc a al gvrmw

m a ar mr c a ac cc . i arcular, Mspb

rcmm llw:


11/87

vi Contracting Officer Representatives

Executive Summary

Fufi the reguatory requirements for managing CORs

our aa rv mrcal ur r valu ulll rular

rqurm r maa CoR. rmall la aur CoR a

rv mr CoR ra wr rla mr v crac ucm.

i a, rac maam CoR wrkrc crcal ur

a ac av ccal xr vl a vr r crac.i ac l, ul avr cml w rular

rqurm:

o eur a Co rmall la CoR aur wrk

arcular crac

o eur a CoR rcv aqua ra crac c, r

ccal ara, a ral cmc a r m, a lvr

r wa

o sracall maa CoR wrkrc a lca r

CoR, a rack r cmc

Improve the day-to-day management of CORs

sm ac ar rrm m a--a maam ac rlavl wll.

hwvr, all ac mrv r maam CoR rrm

a la a--a maam ac mr cvl. Ac ul

cr llw maam ac a wr rla mr v

crac ucm:

o imrv r wc CoR ar lc a a a

al crra

o imrv rquc w wc CoR wrk a crac

arl crac rc

o eur a CoR rrm all r-awar a -awar ccal

ak crac

o eur a CoR av u m r r crac wrk

o Ra CoR rrmac r crac u

o Cr mac r ml a CoR wrk a mak

ajum a


12/87


Introduction

Crac ca a vr cv a arra wa accml a

mra ar gvrm wrk. tr qu a

cracr ca rv ma ruc a rvc mr cvl a/r

cl a gvrm. Raal l ca a ar wa

ruc a rvc ul crac, wa wa, a wm. hwvr,

vr ca ar a w ac crac r ruc a rvc,

mu vl a maa crac a cvl a l. ral

ml mu ur a vl a maa crac wll. ol cacrac rul m ulc r rm rv lvral a

ar qual, cml, ml, a c cv.

Mspb r u vlv mr rcl rla wrk

r ulc, cv a c maam, a ur

a rrl ra wrkrc. A war axar m, ral

ml vlv crac mu ac ulc r ur

crac llar ar maa accr w law a rula a a

crac rul lvral a m ccal gvrm.

t crac rc l, a wll a maa ml vlv

crac rc, mu carr u cvl a cl. all, ml vlv crac mu av ra rrm r

crac wrk cvl.

Recent trends in contracting

t ura mrac u vlv CoR maam,

lul rvw rf m m rc r crac. i rc

ar, llar valu crac a cra a crac av

ca. i a, r av ca umr ral ml

w ar vlv crac.


13/87

Contracting Officer Representatives

Buying more and increasingy compexproducts and services

t wrk gvrm a ca vr m a cl a cm

a crcal ar vra wrk a a w av rm a ural-

a kwl-a cm. t ca av cau ac rcur a

cral cmlx a cl arra ruc a rvc rm cracr.A Figure 1 w, amu auall crac cra rm

$175 ll 1997 $328 ll 2004. t rr a cra

87 rc ju 8 ar.5

Figure . Tota cost of Governmentwide contracts*

Introduction

0

1 00

2 00

3 00

4 00

19 9 8 19 9 9 20 0 0 20 0 1 20 0 2 20 0 3 20 0 41997

Fiscal Year

$

Billions

*exclu crac l a $25,000.

Al w rmu rw amu crac a cra

rr crac u urca mr cmlx ruc a

rvc, a rr crac r rvc. t gvrm lr

crac r ju c ul, acl ur, a ruc , la

a r majr wa m. nw gvrm u cracr rv

cmlx maam cul (uc a cl ur a acal m

vlm), a l cmlx rarc a vlm rvc (uc a

r w a cur m a avac a vl

cl). i, m crac, gvrm wrk arr

w cracr vl cu lu ral vl

rlm.

Auu 1998 a Auu 1999; Government Executive Special Annual Issue: Procurement Review, Auu2000, Auu 2001, Auu 2002 a Auu 2003; Government Executive: Top 200 Federal Contractors,

Auu 15, 2004 a Auu 15, 2005.

5 naal Jural gru, Government Executive Special Annual Issue: Top 200 Federal Contractors,


14/87


Needing a more effective contracting workforce

A cv crac rc rqur arra rul a rcur a

u l kll ml w ca cvl mlm rul a

rcur. Cral r la vral ar a cu mrv

a raml crac rul a rcur. t a rul mr

mr, fxl m clu w, vav m crac m mr cmlx gvrm. Wl w m rv

ca avaa, al cra aal call r w mu

mlm m. t w rcur a m rv mr fxl a

u rqur mr xr a ral jum ar ral

ml u m. t ml w ar rqur cvl mlm

fxl mu call wll lc, ra, a maa. orw,

v w m cv rul a rcur, r crac ucm

wll ralz.

eur a gvrm m ulc r acv uccul

crac ucm rqur a ac av u ral ml w r kll a cmc a vr crac. t ral ml

w wrk crac cu a crcal ar gvrm wrkrc

rl r ll llar gvrm rurc. i mra,

rr, a r wc ml ar cvl a

cl maa carr u r crac wrk.

tw ru ral ml ar rmar rl r vl

a maa crac. o ru c crac ral (uc

a crac cr, crac cal, a urca a) w ar

vlv u ac crac. t ur a gvrm

lc a crac arac a arra r a cc urca , a

crac rc ur uc ar a cm, a a

rc ra call a accr law a rula.

t r ru ral ml w av a crcal rl crac c

rram a ccal ml w rv ccal xr

ur a crac m rqurm gvrm. Wl crac

cr (Co) al u ac crac, CoR vl

crac ccal rqurm a rm a cracr m m. r

xaml, r a c w rv a CoR vl a vr

wrk cracr wrk majr wa, cla u uclar , a

al vrmal rula.

Wll rmula crac rul a rcur a urr Co al ar

uc ur a crac m gvrm ccal a

rrammac . Ar all, maa crac rm a u

vw w uccul rul ruc a rvc a m

gvrm . i, cmlx crac rc a

var a cmlx ruc a rvc urca ma a

Introduction


15/87


ulkl a uraal a r ca ccal xr a

crac xr cvl a vr uccul crac. CoR

a Co wrkr ul wrka a vl a maa crac

a m ral rqurm r qual, ml, cml, a c.

M wrk a ml vlv crac a

cu crac cr a r ml wrk uac crac.6 Urual, a Figure 2 w, wl crac a

cm mr cl a mr cmlx, umr crac cr

(gs-1102) avalal wrk crac a rma all am.

i r ua, varu arac av r mrv

al acqu wrkrc al cra crac

wrkla. t arac av cu rac maam a kll

vlm rmarl crac cr.7

Figure . Contracting costs and number of contracting officers

Introduction

1998 1999 2000 2001 2002 2003 200419970

20,000

40,000

60,000

80,000

100,000

0

100

200

300

400

Fiscal Year

On the right, the number of contracting officers

On the left, the amount of contracting in billions

surrl ll a a a CoR w rv ccal

a rram xr r vl ccal ac crac a r

vr ccal wrk cracr. t ml ar crcal ur v crac ucm, a ccal ac r crac

wrk av cm cral mr cmlx. i a, CoR ma av a

6 t ral Acqu iu, The Federal Acquisition Workorce: Fiscal Years 2003 and 2004,Arl 2005; U.s. Mr sm prc bar, Workorce Quality and Federal Procurement: AnAssessment, 1992;

7 U.s. gral Accu oc,Acquisition Workorce: Status o Agency Eorts to Address FutureNeeds, dcmr 2002; U.s. gral Accu oc,Acquisition Workorce: Agencies Need to BetterDefne and Track Training o Their Employees, Jul 2002.


16/87


rur ak mr rl r maa crac cau r ar

rlavl wr Co avalal wrk curr crac. trr, Mr

sm prc bar wa kw mr au CoR, r rl

crac rc, a w mrv r al l ur v crac

ucm.

Why we conducted this study

Alu CoR rrm crcal wrk vlv a lar amu ulc u,

r av mrcal u w CoR ar maa rrm r

crcal rl crac rc. r u, w cuc a urv

CoR rr ura w ar a r rcv r

crac wrk.

t vrall ur u wa xam CoR wrkrc (clu

CotR) a rcmm w ca r maa ur v

crac ucm. W wr r rl CoR, w ar, wa

k crac ak rrm, a w ar maa. Ulmal,

w CoR ca mr cv, crac ucm ar r a ulc

r ur a rur aual vm vr $300 ll

crac r rc.

W cu maam racc a rla r

crac ucm rm ml, qual, cml, a c crac

lvral. Wl r ar aal wa a rul crac, r

ur ur, CoR rcv a ra crac ucm ar

rlva a arra. t vr xrc ru CoR a cmll a

aurav rma au r xrc crac a au w

ca r maa. bcau CoR rr r xrc a r

crac ucm, w ca rcl rm wc maam racc av

cac mrv crac ucm.

t ur ur rcmma, w rv ackru rma au

CoR a crac wc wrk. W ar rular u

maa CoR, clu rmal la CoR aur, CoR ra,

a rac maam CoR wrkrc. nx, w cu a--a CoR

maam u uc a CoR lc, w CoR ul wrk a

arcular crac, wa crac ak rrm, m avalal

r crac wrk, ra CoR rrmac r crac u,

a mac r l CoR wrk w crac.

t rr ar uc u a wa ul urca va crac

r w ac ca mrv r ac crac rc, w c

cracr, r w raml crac rc. t u ar rv

gvrm r cc ruc a rvc, a ar alwa

ur crl ac r CoR urvr. Wl u ma ac

Introduction


17/87


w wll CoR ca r j, ar ac maa CoR

rrmac r crac wrk. our ur cu ac a ca

ak r maa a ur CoR ca mr cvl rrm

r crac u.

Methodoogy

t rmar urc rma r u wa a 2003 urv CoR 10

ac a 90 rc crac llar y 2000.8 Ac a

uc vlum crac ar lkl av mr xrc a var

crac ua a mr rul crac m a

racc. t CoR uc ac ar lkl av mr xrc a

rr ca rv mr uul rma au wa wrk a wa

wrk rm w ar maa, a wul u CoR

ac a ll crac.

Our survey covered the following contracting topics:

o CoR mrac a xrc

o tcal crac CoR wrk a r ucm

o Rular ac maa CoRl rmal la CoR aur

l tra

o scc crac maam u

l CoR lc

l W CoR ul r wrk a arcular cracl pr-awar a -awar crac ak

l tm avalal CoR wrk

o or ac maa CoR

l srac maam CoR wrkrc

l Wrk w r crac wrk

Mr al rma ur aml a urv ml clu

Ax A. W av rv a c ur urv Ax b.

8 t ac wr lc a m rc aa avalal rm ral prcurmdaa sm (pds). t pds ca ac rr crac c a crac ac(uc a crac awar r crac amm) r crac vr $25,000. our aml accur 83 rc crac ac r y 2000.

Introduction


18/87


Contracting and the Roe of CORs

Cracal call rcurm r acqu a ca a

cmlx gvrm acv vlv gvrm ml a all lvl

a rm a umr r ccua. i c, w w

a r vrvw crac w a cu rl CoR rv

ccal xr car r uccul crac. our am rv a

cx r ur a rcmma.

Crac var cmlx a umr acr clu crac a ac rcurm rc, m, a culur

w wc crac cuc. Acv v crac ucm (

rm ml, qual, cml, a c lvral)

crac rul a rcur u, w wll gvrm ml mlm

m, a ulmal acual rrmac cracr. W a

rul a rcur crac, r w lk a rrmac

cracr, w gvrm u crac, wa gvrm urca

w crac, r crac arac ak. our cu CoR a

w wll ar maa rrm r crac u a u, ur

v crac ucm. hwvr, mra ura a au

crac rul, rcur, a m ura vrm wcCoR wrk.

What is contracting?

Crac rmar m ral gvrm ac u urca

ruc r rvc rm urc u ac. t rmar rula

vr crac ral Acqu Rula (AR).9 Accr

AR, v r ral Acqu sm (As) lvr a

ml a valu ruc r rvc cumr, wl maa

ulc ru a ulll ulc lc jcv.10

9 t rcurm rula cc a ac ar a AR a cma rula uuall rr a a al r AR. r xaml, dAR c rula AR, a a darm d.

10 AR, sc 1.102(a).


19/87


gvrm ac ca crac r, urca, r acqur ruc a rvc

rm rva cr , r ral ac, a r lcal vrm

raza, r r -r raza, alu ra mr

cmm k crac a ccurr rmarl w gvrm

a rva cr. our al ral ml w wrk

crac w ral ac a rva cr cracr a wll a r

gvrm r -r cr cracr.

The ega framework for the Federa acquisition system

t ramwrk r As clu u rcl a lc a

rcur ca AR.11 t u rcl ar:

o sa cumr (ac rram r rram maar) rm c,

qual, a ml; r xaml

l Maxmz u cmmrcal ruc a rvc

l U cracr w av a rrmac a curr al

rrm l prm cm

o Mmz amrav ra c;

o Cuc u w r, , a ar

o ulll ulc lc jcv

t lc a rcur AR clu mr cc uac

rm crac, lvl cm, rc rucur,

a w ar a a ral. t al clu rma au w

alr rm a crac; rqurm r accual, aur, a

lma ac gvrm ml vlv crac; a

w rlv u w cracr a gvrm. Rcl,

srvc Acqu Rrm Ac 2003 (sARA)12 rmall acqu

clu rqurm , maurm cracr rrmac, a

ccal maam rc, a raal crac acv.

tr ar al cc aar cuc, cal ul, a r

rqurm al AR ur a crac cuc arl

a l, w ral (r aar) cfc r, a r

gvrm. t cal rqurm cvr u uc a c a

m rma xca w cracr, mlm r r accac

w gvrm ml a cracr (r cracr ml w

gvrm), a r r rau gvrm rl.


11 AR, sc 1.102 ().

12 pulc Law 108-136.


20/87


The acquisition team

t acqu am c all arca acqu rc

clu gvrm ml ra rm r ac lar

amrav a ur ml. i r vrvw w lk a rl

ur ru l acqu amrram maar, Co, CoR,

a cracr.

prram maar kw rall wa r raza a w,

a ar rl r cr a r a lma gvrm r

ruc r rvc cvr crac. i a, rram maar

aurz rram u a r m. r xaml, rcr a

rarc cr ca rm a r w qum a rv

u a r a qum. prram maar ar cumr a r

rv rcurm rc.

prcurm ral, rmarl Co, rv a gvrm a a

ar rl r u ac crac a r ur arc rcurm law a rula ca AR.13 i crac,

law ac rr ar ( rcal) w a ar ar

( a) r a u r cracual rla w a r ar

( cracr). t gvrm rcal, crac cr

a, a cracr r ar.14 t aur Co a wll a

lm a aur ar ll u r Co a crca

am, mr cmml rrr a a warra.15

t Co uuall wrk rcurm c rar a rram

c a rv xr u ac crac

rc. t AR rv crra r lc a Co a

cmlx a llar valu acqu (crac) a

a caa xrc, ra, uca, u acum,

jum, caracr, a rua.16 h r rl r

ur rrmac all car crac ac, cmlac

w rm crac, a auar r

U sa cracual rla.17 Lall, Co,

a gvrm a, w rl r ur r

crac rc.


13 Crac ocr ar call rrr a Co cvla ac a a Ko ac u m rm cmma cr. t ar uuall gs-1102crac cal r, a av a warra rm r arm rv a gvrma crac rc.

14 Maam Cc ic., Introduction to Federal Contracting, Wa, dC, 2001, . 4-10.

15 AR, sc 1.603-3.

16 AR, sc 1.603-2.

17 AR, sc 1.602-2.

Practically speaking

no matter who else

may be working on a

particular contractitis the responsibility of

the COR(s) to ensure

that the technical

requirements of the

contract are met.


21/87

0 Contracting Officer Representatives

t Co mu ra cra crac rl a ak, u ca la

cra r crac rl a ak r. r xaml, Co ma,

u rarl , uc xr ucal ara crac

maa r vr crac ccal ac. trr, cmm r

Co la ccal vr a/r amrav maam ac

crac rc CoR. dla ccal rl

CoR al mra mall ac wr r w Co ca all ccal xr rqur vl a vr all ac crac.

i ral, a mall ac ma av a urca arl a ma r

ruc a rvc a a lar ac.

t CoR uuall wrk rram c ucal raza a

a ruc r rvc rv crac. CoR rv ccal

a rram xr car vl a maa crac. prcurm

lc ccall clu CoR (a CotR) a r quval a

ar mmal acqu wrkrc.18 CoR ar uuall

lc r w avc rram c. i a, CoR l av

aur wrk crac r av rmall lauc aur Co. Wl AR rv uac a crra r

lc Co, rv uc uac r crra r lc

CoR. trr, rc r CoR lc (a am) var ral

rm ac ac. Ac ma lc CoR a r xr a

ccal r ucal ara, xrc, ra, kwl crac rul r

rcur, r cmlx r llar valu crac. hwvr, ac ar

rqur u r a r crra a a r lc r a

CoR.

t cracr w rv ruc a rvc gvrm ar al

mmr acqu am.19 Cracr avr ulll crac rv lvral ula a mak a r . prl

rrm cracr wll lvr l a mal crac ucm.

The agency roe:Fexibiity in managing the contracting function

acr uc a w a ac raz, w muc crac , a w

cmlx m ar a ar urca ac cmlx ac

crac acv. Ac av cral fxl aju r

crac uc u r raza a cc crac .

r xaml, mall ac a ll crac ma m cv

a c cralz rcurm uc r w c

amra. t Co wul cuc rcurm acv a

rqu rram maar ruu ac. d lvl


18 oc ral prcurm plc, plc Lr 05-01, a Arl 15, 2005, avalal a://www.wu.v/m/rcurm/lc_lr_05-01.ml.

19 AR, sc 1.102-3.


22/87


ccal cmlx ruc r rvc urca, a ccal r

ac rram ara ma a arca crac vlm

a maam.

i cra, lar ac r a mak ma cmlx a cl urca

ma av a mul-r rcurm c w r c amra.

Lar ac al ma mr cv a c cralz rcurm uc al majr rram r urau a. Lar

ac ma al u ra rjc am (ipt) cm a umr

ral rm rcurm, rram, ccal, ac, ul, a

accu l w ar rl r vl a maa a arcular

crac. t Co uuall la ipt a r ma r mr CoR

a arcular am. n mar z ac, r w crac

acv ar raz, u w aum a mar w l ma

wrk a arcular crac, rl CoR (r CoR)

ur a ccal rqurm ar m.

Ac a r vual ml w ar vlv crac avcral fxl mak c a av a u al mac

a crac ucm. Accr AR, ac acr vlv ac

mlul aum a a lc, rcur, ra, r racc a

r gvrm a r law, excuv orr, r

rula a rw c w law, rm ur AR.20

ta , rar a aum a a ac r ccall

aurz; ac a rcurm rl ul aum ca ak a

ac a ccall r l a vla law. r

xaml, a ac ma u a w r uqu arac urca a arcular

ruc r rvc a l a law r ac. t av

rra rm u a w arac ju cau arac a ccall cr r aurz AR. bcau w lau

cr v AR, jum ma rcurm ml ca

mak rc w a uccul crac a a m

rqurm gvrm.

The contracting process and the roe of CORs

Crac uuall carr u r acrac la, crac

rma, a crac maam. Figure 3 c rc. t crac

la a w a rram maar r xcuv ( crac cumr)

c a gvrm a ruc a/r a rvc a w

rm rm a c lca ( c cracr

al r a gvrm crac). t crac rma a w

rmal lca r r r a w a crac awar

cracr w ral. t crac maam a w


20 AR, sc 1.102-4 ().


23/87



Figure . The Contracting Process

I. CONTRACT PLANNING

Solicitation

of Offers

II. CONTRACT INFORMATION

III. CONTRACT MANAGEMENT

Bid

Evaluation

ProposalEvaluation and

Negotiation

Contract

Award

DetermineNeed

AnalyzeRequirement

Determine

Extent ofCompetition

Source

SelectionPlanning

Solicitation

Terms andConditions

Initiation ofWork andContract

Administration

Inspection andQuality

Assurance

ContractorHR Management

Payment and

Accounting

Modificationand Special

Terms

ContractCloseout orTermination

Aa rm: Contracting Ofcers Technical Representative (COTR) Training Blueprint(rmrl call Contracting OfcersRepresentative (COR) Workbook), ral Acqu iu, oc gvrmw plc, gral srvc Amra,nvmr 2003, . 27-30.

a wrk crac a w crac clu r rma.

W rvw ac a w arcular ma rl CoR.

Table 1 la m cmm ak a CoR rrm crac

rc raz accr a crac. t l rv a

vrvw ccal ac crac a mra rl a CoR

la uccul crac.


24/87



Tabe . Typica COR Tasks*

CONTRACT PlANNING

lAv r rm a r a ruc r rvclAalz ccal rqurm ruc r rvclCuc mark rarc al ccal rqurm r al cracrl

prv ccal rma a rm crac a lvl cmlpla ccal ac urc lc rcleal lca ccal rm a clhl rar am wrk (soW) a r rm a c lca

CONTRACT FORMATION

lsrv al valua a ralleal crac ccal rm a c

CONTRACT MANAGEMENT

Administration

lsrv a ac ccal rrav r crac amralRr ac ccal m, rcr mra aclCr w rram c a ur ru crac rrmaclMaa CoR llA cracr ura ccal rqurm

Monitoring the technica work of the contractor, quaity assurance and inspection of deiverabes

ldrm a l lvral rqur rm cracr, w u alMr cracr cmlac w um lvrallRvw a arv r rjc ccal lvrallgv ccal rc cracrleur all wrk accrac w crac rqurmlRvw a mr rr rr a wrk laleur cracr cml w qual crl ml

Av Co wrk a acc r rjcleur cracr rrl crrc all c a m

Changes and modifications

lAv Co u ca rr, vl ma rqual ajum, a valua cracr clam

lprrm a ccal rvw cracr r ca

Contractor human resources management and financia management issues

leur cracr x rqur maral r eeo, crac law, a j alRr vla lar aar ColMr m wrk a cracr rcr-k rcurleur cracr rc all al a a rqurm

leur cracr a ml w car caal, qualca,a xrc

lRvw a quckl rc cracr vcldrm rr r avac am rqu ul rc

Contract coseout or termination

lprv ccal rma r crac rma clrwar CoR l Co w CoR u

* parall aa rm Maam Cc icrra, Crac ocr Rrav Cur (n. 1070),2001, . 1-5 a 1-23.


25/87


Contract panning

CoR vlvm crac la mra ur a crac,

rm ar, accural a cmll la gvrm ccal

a w lvral wll a rm m

. i crac la a, CoR wrk w rram maar

rm wr r a r gvrm crac r a arcularruc r rvc. t, CoR wrk w Co cuc a mr al

aal gvrm , clu ccal rqurm

r rrmac aar crac mu m. CoR al l al

al mram r crac cau kw w lvral mu

rv a/r w l a lvral cul ak ruc. CoR u

rar crac mram call mra lvral a

ucm a larr ac av wc CoR rul amlar.

CoR al rv ccal xr l Co rm arra

crac allw gvrm a wa a a raal

c a a a accal lvl rk. t crac c rm arra lvl cm a a a rc rucur

crac. Crac ca ra rm ml urca cmmrcal

ruc (.., c ul) l-rm rarc a vlm rvc (..,

avac ccal m a ) caal cruc (.., ul

curu, r r ra). tr ar cra crac, uc a

r majr rarc a vlm rvc a ar arcularl cul vl

a maa. r k crac, gvrm ma kw wa

al ruc r rvc ul lk lk r w ul rrm cau

ral ca r cl. ia, ruc r rvc vl

arr w cracr, wc mak

vlvm l kll gvrm ml v

mr mra ur v ucm.

Cmmrcal, x-rc crac, uc a u

urca c ul r acl maac rvc,

call av rc ra aca w cc lvl

qual a qua a av al vr

m cm rcz aar.

Cmmrcal, x-rc crac call

rqur cmlx a a a ar rc r

gvrm a vral cracr ar uuall al

rv cmv rc. t rk gvrm

mr lm a ar w w a cmmrcal

m r m al aar. t

vlvm CoR uul crac

ur a arra qual cmmrcal

ruc a a a arra c.


Performance-based contractsIn this type of contract, the Governmentspecifies the performance standards thatthe contract deliverables have to meetsuch as what the deliverable must doand how well they have to do itandsets a fixed price for the contract. Theprocess or approach used to achievethe performance standards is theresponsibility of the contractor. If thecosts are more than anticipated, thecontractor absorbs the additional cost.

In this way, the financial risk shiftsaway from the Government and to thecontractor. However, even in performance-based contracts, determining the requiredperformance standards of the deliverables(developing performance metrics) requiresthe technical expertise provided by CORs.


26/87



Crac urca cmlx ral rvc, majr ra

arwar m, rarc a vlm rvc, r cruc rvc ar

arcularl cmlx. t crac call av varal, c-lu

rc rucur wr amu a cracr c

(raw maral r ul) lu c lvl r cracr

accml wrk. o lvl r kw a

crac. i a, cmlx, cu- rarc a vlmcrac, gvrm ma alwa kw wa mal lvral

crac ul lk lk. i r ca, vrall c ca wll

ma, a rk crac alur r gvrm

ac w mr m mu a cma cracr rqur

u mr r a wa all ma. gv lvl ucra

ma al c a rk gvrm, rl

CoR al crac. Ur crcumac,

CoR la ccal ac crac, aca rk a al

call cracr a gvrm ma ac a w rk ma

maa vr m, a l al arra rval a ml

r crac.

dur la, CoR al wrk w Co vl urc lc

rc clu ccal crra r valua cracr ral. CoR

ma u r xr a amlar w cracr cuc mark

rarc ar rma au ccal crra, r a a l al

urc (cracr). t Co u rma rm cm a

ur ac a uc umr qual ral rm wc

lc a al cracr.

all, CoR wrk w Co rar rm a c

lcar rmal rqu r cracr um ral accmlc wrk r gvrm. t gvrm ccal rqurm ar

la u a am wrk (soW). t soW, al w gvrm

rqurm r ml a aca c a r rma car

r cracr ura gvrm rqurm, mak u

lca rm a c. CoR rv ccal xr car

cv gvrm rqurm uraal a rc rm

lca. r ur ur, wa m mra a w

gvrm mr cmlx a/r rk gvrm rar,

cru CoR crcal ur gvrm a a wll la

crac.


27/87



Contract formation

t crac rma a w rmal lca r ral a

w awar crac.21 t lca ul a rqu

r ral r rqu r rm al cracr ( w w

rv ruc r rvc gvrm) gvrm r

a/r rvc. t lca a wc cracr r gvrm w a wa wll rv, w wll rv , a a

wa c. i ca ac gvrm rqurm wr vrlk

r ucl c crac la a, crac

rma a wll ral rul a crac a ca accml

wrk .

t ccal am crac ral rmar acv CoR

ur a. oc ral r ar rcv, ar valua aa

a r-al crra rm wc cracr r valu

r gvrm. CoR ar lul rr r a ral

rm wc rv cml rma rm wc ju caal cracr. CoR ul al vlv a cracr

ral ur a ccal crra r valua al ur

crac la ar accural a cmll al a a a ccal

u ar rlv a ac cracr ca cm ull a arl r

gvrm u. CoR ma al rv al al rv

rmal rvw a ra ral.

o, CoR ar vlv w Co a w gvrm

a cracr() ur a al arm wll m gvrm

ccal rqurm a aacr all ar. CoR ma vlv

r crac acv ur crac rma clu va cracr

a rrmac a rv u r ma crac c. t crac

rma a rul a crac w gvrm a a c

cracr r cracr. t crac ul clarl a cmll la u

gvrm rqurm, rl cracr a gvrm,

a ma cvl a a gvrm rqurm (qual,

ml, cml, a c) ar m.

Contract management

t x a crac crac maam a. t a

w a wrk cracr a w clu r

rma crac. t al a ur cracr m

gvrm ccal rqurm r qual a cml, a c,

21 t gvrm ma awar l urc crac wu lca ur cccrcumac. hwvr, v ca, vlvm CoR mra ur ccal ac crac ar la u accural a a lkl a cracrca rv ruc r rvc rqur.


28/87


a w mram al crac. Aum a wll vl

crac, ucc crac cracr rrmac

lvr rvc a ruc a gvrm rrmac mr

crac a a a ccal rqurm ar m. CoR

rall rrm ccal vr uc cau ar uuall l

l w xr a w ac a cracr

rrmac. tcal acv crac maam a clu a wrk a amra crac, mr ccal wrk

cracr (clu qual aurac a c lvral), cracr

hR maam a am a accu crac u, mca

crac, a a cal rm crac, a clu r rma

crac.

Crac maam m crcal a rm rram c

rcv cau ur a a crac wll r ucc r

al a gvrm rqurm. i crac ucc, ma

a cracr a ruc ruc a rvc rqur, a a

gvrm rravuuall CoRaccural a cvl jua ruc a rvc a gvrm rqurm rm

qual, ml, cml, a c. i , gvrm a

wa , a cracr a a ar rc r lvral. i

ca, cracr wa wa xc a gvrm rrav

r j vr a cr cracr wrk. Crac maam

xrml call a rlm maa crac ca rul

alur crac.

CoR ar mal vlv all ar crac maam, u r k

rl ur a all ccal u crac ar maa

cvl. CoR mu wrk a a w Co rlv a rlma ar. tccal u crac maam uc a mr cracr

rrmac, ju qual lvral, a kw w crac

ul m ar cmlx u. ic aar r m ruc a

lvral ar wll al, u aar r mr cmlx lvral ma

av cra r ac crac. Mr cmlx a cl crac, r crac

a rqur mr jum ar CoR, mak CoR j mr

cul. i ur crcumac a call crcal cvl

lc, ra, a maa CoR, ca r ar ur v

crac ucm.

i alwa a crac cul wll mr a al rlv.

hwvr, w crac lvral cal al m ccal

rqurm, ar ml, ar cml, r ar mr cl a rall

ar u, gvrm r cracr mu ak ac crrc

ua. Rarl cau rlm, r w ak ac,

rlm lkl cra c gvrm a ruc cac

r a uccul ucm. CoR vlvm ua crcal ur

uccul rlu crac rlm. W rucur crac



29/87


uc a rk -rrmac r mr gvrm,

al c axar r crac rlm a/r crac alur ar v

rar. i ua, mrav a CoR vlv ccal

ac crac av xr, aur, a maaral ur

cvl rrm r crac u al gvrm.

t al acv crac maam vlv cl u r rma cracac wc rqur r u mra wrk r CoR.

i cracr wa uccul m gvrm rqurm,

crac cl u. Cl-u acv clu cr cml all

lvral, rvw a r rcr u ur crac, a cml

al am cracr. A crac ca al rma r

cml. i r wr ca rlm ur xcu crac

rul cracr alur rrm, crac ca rma r

cau. Alral, gvrm rqurm av ca cal,

crac ca rma a ca . trma crac

ma rqur mr wrk r CoR, uc a rv vc ccal

ucc a ur r amrav cuma a wll wacrac rvw, a wll a au a aal rcur. t ur

crac a mmz c gvrm. o, a al crac wll

rqur aal r a m r a w cracr cml r r

wrk.

Concusions

t r rvw crac a rv cx w wc CoR

rrm r crcal u rc ulc r ur a crac

lvral m gvrm. t mr ccal ac

crac rc ar arcular r u cau ar

wr CoR vlvm m crcal. i mra av CoR

vlv ur crac la a rma a l ur a

r wll urca a a ral wll valua accr

arra ccal crra. i quall mra av CoR vlv

ur crac maam a ur a crac lvral m

gvrm.

t x c rr cr CoR a crac wrk ,

llw a c cr ur a cclu au w CoR

ar maa. t al c ca ur rcmma r mrv w

CoR ar maa ca l ur v crac ucm.



30/87


CORs and the Contractson Which They Work

t rv cx r ur a rcmma,

mra ura mr au CoR w r ur

urv a au cal crac wc wrk.

CORs are very experienced professiona/technica empoyees

t majr 1,426 CoR w r ur urv wr wll-uca,

-urvr, l ra, a wll a ral cvla ml wrk

ral r ccal ccua. i ur urv, 35 rc a a mar

r, p.d., r r avac r a a aal 42 rc CoR a

a aclr r. ovr 80 rc CoR wrk ral r ccal

ccua, w 53 rc m ml r . ovr al

(57 rc) ur r wr av gs-12 (r quval) ra lvl,

a ar 41 rc wr w gs-9 a gs-12.

Figure 4 w m umru ccua r ur r ra gs-9ru gs-15 cmar vrall ral wrkrc ra. t

rc ccua ral ral wrkrc cmar

ur CoR r wr urr v l ccal aur

m gvrm crac. M (75 rc) CoR urv r

ml, u vr r urv ccal ac crac.

n urrl, v r uca a ra lvl, a majr ur CoR

(84 rc) ar $57,000 r mr r ar y 2003. i m r wa,

CoR ur u wr mracall ual rm r -lvl,

-CoR, ral ml.

Alm al (49 rc) ur r a vr 20 ar xrca ral cvla ml, a 33 rc cul rr 3 ar r l.

A aal 37 rc a 10 20 ar ral cvla xrc.

Arxmal 30 rc ur r a wrk r r curr ac

r mr a 20 ar, a ar 41 rc r 10 20 ar.


31/87


our r a cral xrc wrk w crac ral

a a CoR ccall. Alm 80 rc ur CoR a 6 r mr ar

xrc wrk crac rall. Mr a 38 rc ur r

a mr a 10 ar xrc a a CoR. Ar 23 rc CoR a

6 10 ar CoR xrc. tu, ur urv rul rfc xrc

a vr a ru ml w rc crac ca rv

valual w r rl rc ca mrv.

CORs and the Contracts on Which They Work

Figure . Occupationa group of the CORs versus the Federa workforce(Grades GS-0 through GS-)*

0%

20%

40%

60%

80%

Engineeringand

Architecture

Adminsitrative,Clerical

and OfficeServices

MiscellaneousOccupations

Group

Businessand

Industry

AllOther

Occupations

COR Survey Workforce Federal Workforce

48%

11%

14%12%

3% 4%

8%

21%

60%

18%

* er a Arccur ar r gs-800, Amrav a Clrcal ar gs-300, Mcllau ccua ar gs-000 ru gs-099, bu a iur ar gs-1100, a All or rr all r gs ccua.

CORs work in a compex contracting environment

i mra ura crac ur CoR call wrk

ur la 2 ar. W crac ruc a

rvc urca, rc arram, crac ura, a

crac c vr all ar crac.

Products and services

W ak wa ruc r rvc r cal crac wr

urca, CoR rr a a cal crac clu urca

a rm cmmrcal c ul amrav, ral,

a ccal rvc, majr wa r r ra m, r caal

cruc. M CoR rr a call wrk crac vlv

urca mr a ruc a ruc a rvc.


32/87



Urual, umr r w rr wrk crac

a vlv a l ruc r rvc wa mall r u a wr

m urca ma a rc al CoR rrm r u

cvl r acv v crac ucm.

Pricing arrangement

W al ak CoR ll u au rc arram cal

crac wc wrk. t rc arram mra cau

arl rm w cul crac vr. i a,

rc arram, a xla arlr, rm rlav rk lac

gvrm r cracr ul crac al. x-rc crac

ar uuall a urca cmmrcal --l ruc a rvc. i

crac, cracr ar m rk, a vr wrk

uuall mr rarwar. x-rc ruc a rvc uuall av

wll-al, ur-w, al maur aar a rqur ll r

jum ar CoR rm m gvrm rqurm.

or, mr cmlx rc arramuc a c lu r, rm a maral rc, ar a rarwar x rc. tu,

ar mr cul vr a a rar rk gvrm. Mr

cmlx rc arram lac mr ma CoR, mak v mr

mra r ac cvl maa CoR.

i ur urv, CoR cul lc r mr r rc arram r

cal crac wrk la 2 ar. t clu a var

r rc arram rm x-rc c rmural,

lvr/ qua (idiQ), rrmac a, r a cma

arram. ovr 80 rc CoR rr a cal crac

a wrk ur la 2 ar u mr a rc arram.hwvr, 18 rc ur CoR rr av vlv xcluvl

x-rc crac. Clarl, rc arram w wc CoR call

wrk ar qu cmlx.

Overa contract duration

Alm al ur r rr a cal crac a wrk

wr 4 r mr ar ura clu all ar. bcau ur

al c aa clu all la c r all crac ar, al crac c

wr vl rla crac ura. W al u a mlr, x-rc

crac wr rall rr ura a crac w r

rc rucur.

Overa contract cost

t vrall c cal crac ur CoR a wrk (clu all

la r al crac ar) var ral. ovr al (52 rc) CoR

a wrk crac valu lw $1 mll, 24 rc wrk crac

wr $1 mll $5 mll, a ar 24 rc wrk crac


33/87


valu vr $5 mll. tal crac c var w rc rucur. Au62 rc x-rc l crac wr lw $1 mll, a mr cmlxrc rucur wr mr cmm r crac al vr $1 mll. Mrcl crac ar uuall mr cmlx, aa mak CoR maam mrmra.

Rc fxl crac rv r rucur crac mak m ar vr. hwvr, r wll alwa ruc a rvcurca ru crac a rqur ccal xr a CoR mr rr a a a gvrm ar a. ia, w gvrm crac ar r rvc a ca ull c avacuc a rarc a vlm rvc r w r mlacur caalCoR vlvm rm u crcal cracucc. i ca, r wc CoR ar maa rrm u cvl ca mak rc w crac ucc a alur.

Contract outcomes: The bottom inet rmar am u wa wa wc CoR ca maamr cvl acv r crac rul. i cr rul, w cu CoR rr qual, ml, cml, a c craclvral rm crac a wrk ur la 2 ar. r urur, CoR ra crac ucm ar rlva a arra,arcularl cr a ur CoR av ca xr a xrcrm wc ju ucm crac wc wrk. i a, ur u w ak CoR ra ucm r crac a wll a rcrac xrc, u al u rm wc maam acvwr m aca w v ucm. Maam ra a ar rla

mrv crac ucm ar mr lkl av r rul ura ulc r uccul crac ucm m.W av ra lv a CoR wl wulra ucm a mr av r mr v a rul ar.

Wl ma CoR rr a r crac m all rrmac al, a ca rr CoR rra r crac al acv a la urr ucm rm qual, ml, cml,

a c. r ac ur car, vuall, arxmal 75 rc

crac lvral m al. hwvr, wl ra vualucm ar rmav, jcv a crac m all rcrac ucm, mulaul. i ur aa, au 52 rc CoR ra lvral r crac a m all ucm a am m. tma a rma 47 rc CoR xrc l a ucm a la ucm car.22 n l maa ma crac acv ucm, ma al ma

ac al cvl accml r m wa m.

47 percent of our CORs

reported that their contracts

did not simultaneously achieve

all of their intended outcomes

in terms of timeliness, quality,

completeness, and cost.

22 d a 100 rc cau ru.



34/87


t vual ucm ra wr al crrla w ac r. r xaml,

w CoR ra crac lvral a ml, al ra m a

-qual, cml w um, a a a ar c. t rrla

ca a maa CoR wll ca ac mr a ju qual crac

lvral. W CoR ar wll-rar a maa wll, a u ca r

rrm r crac-rla wrk, all ucm ma mrv cau

ar rla ac r. t rvr al ru. W CoR ar al rrm r crac wrk cvl, all crac ucm ar lkl

ac a av wa.

Crac ucm ma al ac ruc r rvc

urca, rc arram crac, a ra ura a

vrall c crac. A cu arlr, mr cmlx crac ar

lkl av mr cmlx xca a ar arr m. W wll cr

m rla w crac a crac ucm l

rv cx r CoR maam u cu x c.

i ur aa, w wr al xam ucm rr w callwrk l x-rc crac vru w wrk crac

w r rc rucur. bcau x-rc crac ar uuall mr

rarwar maa, w aca a CoR wul rr r crac

ucm r crac w rc arram a r crac

w r, mr cmlx rc arram. hwvr, ur rul ca

a rc rucur (x-rc vru all r) wa rla ml,

qual, cml, r ar a raal c crac. Accr ur

aa, arxmal am rr CoR w wrk crac w

ml rc arram rr l a mal ucm a

w wrk crac w mr cmlx rc arram. t

ca a maa CoR w wrk mr ml cracca ju a mra a maa CoR w wrk crac w a mr

cmlx rc rucur.

W al lk a rla w vrall crac c a crac

ucm. i cral ru a l a mal ucm r v vr

xv crac ( vrall c) ca cal cra c

gvrm acv car rul.23 sm ma aum al a r

l rk alur acv v crac ucm crac l vrall

c. i ur aa, CoR ra ml, cml, a ar c

lvral wr rla r ra vrall c crac. CoR

w rr wrk crac w l vrall c wr ju a lkl rr

l a mal ucm ara a wr w wrk crac

w vrall c. hwvr, r crac qual, a ll r rr

CoR w wrk crac w r vrall c ra qual a a

w wrk crac w l vrall c. Ac ma mr


23 d rc rucur, aal c cul llar r la cml wrk, wc ca jarz m accmlm.


35/87


cl v mr maa crac a ar mr xv. hwvr,

ur aa w a ac ca ak l xv crac ll a aum

wll mr al acv r ucm. i mra r ac

vl crac a maa m wll, mar wa vrall c

crac.

irl, CoR w rr wrk crac lr ura alrr mr v crac ucm rm ml, qual, a

cml lvral. i mak a w v mr m,

cracr ca r acv rqur rul. hwvr, crac rr

ura wll car. r ur ur, r a

crac lr ura av mr ru r CoR vlvm, mak

lc a maam CoR a mr mra acr ur

v ucm.

t mak clar a r mrv crac ucm ca

cracr xaml, l cmlx rc arramwll

lkl l muc mrvm crac ucm. ev ml crac wul ac crac ucm, r ar raccal lm

wa ca ca au crac. Wa urca, w

muc c, rc arram, a vrall ura crac ar

u rv rmarl ac m . imrv crac ucm

vlv maa crac r, clu maa l w wrk

crac mr cvl.

Concusions

t CoR ur u wr l uca ral a ccal ml.

tr xrc crac wrk mak m caal rv aurav

a cmll rma au crac a au w r rl

crac ca mrv.

CoR wrk a vr cmlx crac vrm. Alm all ur CoR

r wrk crac urca mr a ruc r

rvc. ovr 80 rc ur CoR rr wrk crac a ca

mr a k rc arram. i a, ma CoR rr

wrk crac a wr uuall 2 4 ar ura a valu a vr $1

mll al c. A mr cmlx crac vrm u mr ma

CoR, a u ac r maa CoR, ca carr u r

crac u cvl.

t rval u. Alm al CoR rr a crac a

wrk mulaul acv all ur ucm. our aa

ca a crac ucm wr l arall rla crac.

bcau majr ur CoR wrk crac vlv mull



36/87


ruc a rvc, w wr al a w ruc a rvc rla

crac ucm. CoR rr crac ucm wr rla

rc arram crac. Crac w r vrall c wr rla

r qual, u mr cml r mr ml ucm. Crac

lr ura wr rla mr ml, mr cml a r qual

ucm. t u a ac ca rl r ml

crac, uc a x-rc crac, mrv cracucm.

i mr rarwar crac wll ur v crac

ucm, w mu lk l vlv a w ar maa r

crac wrk racc a ca mrv ucm. Crac,

lk a r acv, wll l wrk w r l w r kll

ar vlv al m. W cu u CoR, w ar

rl r ccal ac crac. Ac ur lc

r CoR, ur a r CoR av r kll, a maa

CoR wll a ca cvl rrm r crac u. W

CoR ar maa wll ar al rrm r crac wrk mrcvl, u mrv crac ucm.

t x c al w u CoR maam a w rla

acv r crac ucm. t u clu rular rqurm

r maa CoR (rmal la CoR aur, CoR ra, a

rac maam CoR) a a--a maam CoR (CoR

lc, w CoR wrk a arcular crac, wa crac ak

rrm, m avalal r r crac wrk, wr ar ra

r crac wrk, a mac r ral ml w wm

CoR wrk r crac wrk).



37/87



38/87


How CORs Are Managed

evr a, ac urvr a maar mak c au CoR a

ac al CoR r wrk vl a vr

uccul crac. Ac rcurm maar a uma rurc

maar al ac c ru ac-w lc al.

t qual all maam c a all lvl ac al CoR

r crac wrk, a ur, ac ucm crac. t

c rr cu w rular rqurm r maa CoR

a a--a maam CoR ac crac ucm.

Fufiing the reguatory requirements for managing CORs

tr ar r mra rular rqurm r maa CoR a ac

al CoR r j cvl. r, accr AR,

crac cr mu rmall la crac aur a crac

r r rrav() clu CoR.24 sc, c CoR ar mmr

acqu wrkrc, ac ar rqur ra m cuc r

crac u. 25 tr, ac ar rqur racall

maa r CoR wrkrc ur av u CoR w

r kll maa r crac w a uur.26 W

cu rqurm a r rla crac ucm

llw c.

Forma deegation of authority

CoR ar rqur av a rmal la aur rm

crac cr r ca rrm a crac u. t

rmal lauuall rm a lr r mmraum

a a CoR a cc crac, a wa CoR ca a mu

, a wa CoR ca rla crac. t la lr

l rc ac a CoR rm avr c a CoR ac

c r r aur, r ac wu aur.

24 AR, sc 42.11.

25 t oc ral prcurm plc Ac (41 U.s.C. 433), a am ralAcqu Rrm Ac 1996, al call Clr-C Ac 1996 (40 U.s.C. 1401(3)) a srvc Acqu Rrm Ac (sARA) (p.L. 108-136). opp plc Lr 05-01 mlmsARA a CoR a mmr acqu wrkrc a cura ac rqur a CoR acv 40 cuu lar vr 2 ar. t d Acqu

Wrkrc imrvm Ac (dAWiA) (10 U.s.C. 1741-46) al CoR darm d.

26 oc ral prcurm plc, plc Lr 05-01, a Arl 15, 2005, avalal a://www.wu.v/m/rcurm/lc_lr_05-01.ml.

Only about 50 percent of

our CORs were always

formally delegated the

authority to do theircontracting work, and

almost 25 percent of

our CORs were never

formally delegated the

authority to do their

contracting work.


39/87


d c a mrac rmal la, l -al ur

CoR rr a wr alwaysv rmal la aur. narl

quarr ur r rl a r CoR rl wr never

rmall la m wr. t r wc ac ar al

rmall la aur CoR ma a CoR ma clar wa

ar a crac.

Forma deegation and contract outcomes. rmal la vl

rla r crac ucm. Figure 5 w rr ml, qual,

cml, a c crac lvral r CoR w ar alwar

vrrmall la aur rrm crac wrk. CoR w

wr alwa rmall la r aur wr markl mr cl

rr a crac ruc r rvc wr cml m, qual,

cml w um, a carr u a a raal c. i ur aa, rmal

la wa clarl rla gvrm al wa rqur

rm crac.

Figure . Percent of CORs with and without forma deegationwho report positive contracting outcomes

0%

20%

40%

60%

80%

100%

Completedon Time

HighQuality

CompleteWhen Submitted

Fair/ReasonableCost

Always Delegated Authority Never Delegated Authority

84%

64%

69%

80%

65%

80% 78%

65%

A raal qu wa r CoR w wrk mr cmlx crac

ar mr rqul la r aur a CoR. our aa w a CoR

w wrk l x-rcccval l cmlxcrac wr

mr r l lkl rmall la r aur a wr w

wrk crac w mr cmlx rc arram. hwvr, CoR

w rr wrk lr a mr clccval mr cmlx

crac rr a wr mr rqul rv rmal la

r crac aur.



40/87



earlr ca a crac w lr vrall ura wr rla

mr ml, mr cml, a r qual ucm a crac w

r vrall c wr rla r qual ucm. pra cau

CoR ar mr rqul la r aur mr cl a lr-rm

crac, a u av clarr aur vl ac ucm. i

l rm w cra caual rac w crac ,

la aur, a crac ucm. hwvr, aar rm ur aaa rmal la aur a a mr c rla w v

crac ucm a rc rucur, vrall c, r vrall ura

crac.

Forma deegation and other aspects of managing CORs. i r

r a CoR w ar alwa rmall la aur rrm

crac wrk ar al mr lkl a a CoR arl crac

rc, rrm a var r- a -awar crac ak mr rqul,

a rr mr crac ra. rmal la ma acuall wrk mrv

crac ucm ru cra a--a acv. Alravl,

rmal la cul ml ma crac maam racc ac w cv a accual crac maam culur. Rarl

mcam ru wc la rla ucm w, r a

a urra markr r r ac CoR maam clar a rmal

la cl rla mr v crac ucm. trr,

mra a ac vw rmal la aur a mr a a

r-rma rqurm. rmal la aur rqur, a

mr v a rarwar a ac ca ak rm

cv a cc CoR wrkrc.

COR Training

t ral Acqu iu rm ra rqurm r CoR

ral cvla ac.27 t l ra c a cmc qu

cc a clu crac u a wll a ral ral a u

maam kll. W al rvw c cvr a ral CoR ra

cur r a rva ra cma.28 W cm a ml

l ra c r ur urv ur.29 W ak CoR ll u

au amu ra rcv a w muc a var

crac c, a wll a r ccal ara xr a r ral

rcurm-rla cmc. W wa kw wa ara ra

a m c crac ucm. W al wa kw wa CoR

rcv r ra , a wll a r rc wa r

m ra ar m uul.

27 t ral Acqu iu, Contracting Ofcers Technical Representative (COTR): TrainingBlueprint, Wa, dC, 2003. t d Acqu Uvr al mlar rqurmr darm d CoR.

28 Maam Cc, ic., Workbook or Contracting Ofcer Representative Course, Wa,dC , 2001.

29Ax b ca urv rm ur u.


41/87



Training and contract outcomes. hr lvl CoR ra crac

c, CoR ccal r ucal ara, a ral cmc wr

rla r crac ucm. t ral rla w ra

crac c a crac ucm (qual, cml, c, a

ml) ar rra Table 2, w rr, mr ca v

rla mr cck mark. t r rla wr r

ra crac c, mr cracr rrmac, a rccrac ac. Rlavl wakr rla wr u r ra

crac law a rula a, urrl, r ra vl

rqurm clu rar soWa mra ak r CoR.

irl, ra vl rqurm wa rla r ucm

l rm crac c.

Tabe .Reationships between training taken in contracting topics and improved contract outcomes

Contracting training topics Quaity Completeness Cost Timeiness

Crac law a rula, clu rul cm a m a crac 4

gvrm ac clu lma arqurm rr gvrm, mlac, a cmmuca w cracr

4 4 4

ec crac, clu cfc ra cur rma 4 4 4

dvlm rqurm, clu wa wrk crac, c rqurm, cucmark rarc, a rar rqurm cuma am wrk (soW)

4

Rqu/a a ral, clurar lca, vl crac cv,jcv a crra r valua ral,a a cracr a rrmac

4 4

prc a c rma, clual gvrm al c ma,a rm rc a

4 4

Mr cracr rrmac, clurv ccal uac, a qual aml, a mak c rma

4 4 4 4

prc crac ac, clu ak rr,vc, ca ac, mca, a raca 4 4 4

dcuma, clu rack rr,lvral, m, a r rcr k 4

Crac cl-u, rma, a aala r 4 4 4


42/87


A Table 2 ca, ra v crac c ara ac r

r ur ucm, wl ra r c ara ac l r w

ucm. A lk acr rw w a qual, cml, a

c wr all ac ra gvrm ac, crac c,

mr cracr rrmac, rc crac ac, a crac

cl-u a aal. Lkw, l crac qual a c wr mrv

cra ra a a ral a mak crac rc a crma. Crac c wa l ucm mrv cra ra

vl rqurm, wr soW, a crac cuma. all,

cra ra crac law a rula wa rla l cra

crac qual. Lk w clum Table 2, w a cra

crac ra a m c mrvm crac c, llw

crac qual a crac cml. all, mr ml ucm wr

rla l ra mr cracr rrmac. hwvr, cau

mr cracr rrmac uc a mra CoR uc, wa

raur a ra c rv mrv crac ucm

all ara.

Table 3 w rla w ra CoR ccal (ucal)

ara a ral cmc (.., ral a wr cmmuca a

rral kll) a crac ucm. Lk acr rw Table 3,

w a mr ra rral kll wa l c rla mr

v ucm all ur ara. Mr ra razaal kll wa rla

r crac qual, cml, a c. icra ra CoR

ccal/ucal ara a cmmuca kll wr rla r crac

Tabe .Reationships between training taken in technica/functiona and generacompetencies and improved contract outcomes

Technica and generacompetency training taken Quaity Completeness Cost Timeiness

tccal kwl a kll, clurcc CoR l r ucal ara,a kwl la vlm ur l

4 4

oral a wr cmmuca cv aca a, rar cal cum, c. 4 4

irral kll, clu mulak, rr, alac cm ma,a k rcr

4 4 4 4

orazaal kll, clu la amva r, a cura vra rc r r

4 4 4

Aaal, fxl, rlc, camaam, r maam, c. 4

tclcal kll lar a u wara qum rrmac u 4



43/87



qual a c. icra ra fxl/rlc wa rla r

crac c, a cra ra cl a war wr rla

crac cml. t aa mak clar a vr mra r ac

ur a CoR ar al a ra maa r ucal ara

xr. t aa al w mrac rv ra uc ral

cmc a cmmuca, raza kll, a rral kll.

Aal ra ral cmc ara rla r cracucm.

our aa clarl ca a CoR w a la mra ra vral

crac ara a wll a r ccal ara a ral cmc

xrc r crac ucm. t rma r Tables 2and

3 ca l ac cu wc crac c ara ul clu a

arcular cur a wc ara ra mra r mrv a arcular

crac ucm. M rmal ra (r --j ra r a mar)

cvr mr a c r cmc. trr, raccal k a

mral cra amu ra lc ru c cul

a cv a c arac CoR ra. Ac ul lc c a cmc r CoR (a ak CoR r

r w rc r ra , a w cu rl) ur a

ra rv m arra c ara.

t acv a arcular crac ucm, uc a ruc crac c r mrv

qual, a ac ma c cu ra crac c m

rla ara mrvm. hwvr, v a ma ra

ara av a mac a la crac ucm, ac ma al

u al cur crac a cvr a w ra ara. i u

al cur a rall uccul a, r

vl calz cur ul r a arcularl cmll u (..,crac qual r c) rlv. rm ur rcv, kw mr au w

ra ca ac crac ucm lul ur a CoR ra

cv a c.

COR training needs.Wl r ma ral arm wa vrall

c CoR ra , w mu lk CoR mlv rv mr

cc rma au r vual ra . CoR av r-a

kwl wa c kw mr au rr r j

r. tr rr r w ra rv rma a ca l

cu ra rurc m crcal c, u mrv rur

vm ra. prcurm lcmakr av rcz mrac

CoR rc r ra a av u a CoR, r

urvr, a/r crac cr cu CoR ra a rar

vual ra la ur CoR ar rar rrm r crac

u.30 W ak CoR ll u au amu ra currl

30 t ral Acqu iu, Contracting Ofcers Technical Representative (COTR): TrainingBlueprint, Wa, dC, 2003; Maam Cc, ic., Contracting Ofcer RepresentativeCourse (FAC 97-27), Wa, dC , 2001.


44/87


am crac, ccal, a ral kll ara cu av a

l Tables 2 a 3. W cmar ra r all CoR w

r CoR w mr a 6 ar xrc rv a CoR rm

rcv curr ra wr l r w mr xrc.

i rr ra r w ru wr mlar, cul ca a

CoR ra ra maa r cmc c ara.

Table 4 ca rr CoR vrall, a CoR w 6 r mr ar

xrc a CoR, w rr a mra r lar amu ra

crac c. A la 50 rc all CoR rr ra

crac law, lal cc gvrm ac, vl rqurm,

rqu a vl lc crra, rc rma, a

mr cracr rrmac. bw 40 rc 50 rc all CoR

rr ra crac c, rc crac ac, a

crac cl-u a rma. ol au -r CoR rr

ra crac cuma.

Tabe .Percent of CORs overa and those with or more years of experience

who reported needing a moderate or high amount of training in contracting topics

Contracting topic Overa+ years

experience

Crac law a rula, clu rul cm a ma crac

57% 53%

gvrm ac, lma a rqurm rr gvrm, ml ac, a cmmuca w cracr

53% 50%

ec crac, clu cfc r a cur rma 47% 45%

dvlm rqurm, clu wa wrk crac,

c rqurm, cuc mark rarc, a rarrqurm cum a am wrk (soW)

55% 51%

Rqu/a a ral, clu rar lca,vl crac cv a jcv, vl crra rvalua ral, a a cracr a rrmac

50% 47%

prc a c rma, clu al gvrmal c ma, a rm rc a

51% 47%

Mr cracr rrmac, clu rv ccal uac,a qual a ml, a mak c rma, c.

52% 48%

prc crac ac, clu ak rr, vc, ca ac,mca, raca, c.

43% 41%

dcuma, clu rack rr, lvral, m,a r rcr k

37% 35%

Crac cl-u, rma, a aal a r 42% 38%

t crac ra wr cal ruc r CoR w 6 r

mr ar CoR xrc, ca a v m xrc CoR

av a ca curr r ra a umr crac c ara.

Urual, arl al CoR rl ar r ar a r ac

ur crac ra , ur aa w a mr



45/87


ra crac c rla mrv crac ucm. Ac mu

ur a CoR ar ra, a a ra k curr m crac

c ara maxmz c v crac ucm.

Table 5 ca rr CoR vrall, a CoR w 6 r mr ar

xrc a CoR, w rr a mra r lar amu ra r ccal ara a ral cmc. surrl, mr CoR

(63 rc) rr ra r ccal r ucal ara a

a r ra ara. t wa al m rqul rr ra

r CoR w 6 r mr ar xrc, w 61 rc rr a r

ra r ccal r ucal ara. t ac a mr CoR vrall, a

arcular, mr CoR w m xrc, rr m

ra r ccal ara ca a CoR ma l ar rul

k ara la vlm r l. t ru v v

alra lvl uca a xrc ur CoR.

Tabe .Percent of CORs overa and those with or more years of experience who reported needing a

moderate or high amount of training in technica and other ski topics

Technica and genera competency training needed Overa+ years

experience

tccal kwl a kll, clu rcc ur lr ucal ara, a kwl la vlm ur l

63% 61%

oral a wr cmmuca cv ac a a,rar cal cum, c.

44% 42%

irral kll, clu mulak, rr,alac cm ma, a k rcr

44% 44%

orazaal kll, clu la a mva r,a cura vr a rc r r

45% 45%

Aaal, fxl, rlc, ca maam, r maam, c. 43% 44%

tclcal kll lar a u war a qum rrmac u

57% 58%

Urual, v u CoR rcv a maa r lvl

xr r ccal r ucal ara, lv a r

ac ur m a ra. barl al urv CoR

rl ar r ar a r ac ur a ra

r ccal ara r ral cmc. our CoR wrk l ccal a cc l a ca ral a u rqur rular

ra maa currc a arcular cl. A cu arlr, ur

aa ca a ccal ra rla r crac ucm, mak

crcal a ac ur a r CoR ar al k ara ca

r ccal ara xr.

Wll vr al CoR vrall, a ll mr CoR w 6 r mr ar

xrc, ca a uaal r ra clcal kll



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u war a qum rrmac r u. bw 43-45

rc CoR vrall a l ll wr CoR w mr a 6 ar

xrc rr ra cmmuca kll, rral kll,

razaal kll, a aaal. A a arlr, arl al CoR ar

r rl ar a r ac ur ra

r ccal ara r ral cmc.

our aa ca a uaal r ra alm all crac,

ccal, a r cmc, v r w 6 r mr ar xrc.

Urual, CoR ar a r ac ur ra

, ur aa w a mr ra m c rla

mrv crac ucm. Ac mu ur a CoR ar ra, a a

ra k curr maxmz c v crac ucm.

Method of training. i a ura rla w

ra a crac ucm, a ra CoR, al mra

lk a wa ra CoR cr m uul. Figure 6 w

CoR ra uul varu ra arac. t m uul rm ra wa --j ra, ra 65 rc CoR a vr uul r

xrml uul. t x m uul m ra wr ac-rv

clarm ra, vr-rv clarm ra, a mar (clu

wrk a crc), rcvl. t la cv m ra

wr cmur-a ra (Cbt) a l-ac lar. Mr a 30 rc

ur r ra ra a a all r l mmall uul a

wa ra a xrml r vr uul mall ar CoR.

Figure . Percent of pespondents who rated the method of trainingas extremey or very usefu

65%

39%

28%

24%

0%

20%

40%

60%

80%

On-the-job Agency-provided

classroom

Vendor-provided

classroom

Seminars,workshops,

andconferences

Self-pacedlearning

Computer-based

38% 37%


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CoR m a ra wc ca rac w r cllau r

r arca crac rc mr uul a Cbt r l-ac

lar. o r cmm, Crac ral cu

a xca a/lu w a lv r, ull wll qual, rr

rur c a mr cv a a rul kwl a

cla. o--j ra, ac- r vr-rv clarm ra a

mar, wrk a crc rv ru r CoR cua xca a w r vlv crac. Cbt r l-ac lar

lm cu a xca a a ar a mr uccul

CoR ra xrc. sl-ac r cmurz ra ma av a lac

all x CoR crac r rv lm rrr ra.

hwvr, ac ul carul au rl avl m

cau ma CoR m uul w cmar ra a

allw rac a cu. Wl w u a mr ra crac

c, CoR ucal ara, a ral cmc wa rla r

crac ucm, w am acra ra qual. t

ra rul rumal wul v mr ramac ac ur CoR

rcv -qual ra.

t aa rcv ra ar CoR xrc ca a

ac ul rv aqua al ra andur uqu rrr

ra alm all c ara, ur a CoR av kwl

cvl rrm r CoR u. i arcular, ac ur

ccal ra l CoR k ara ca a avac r

ccal r ucal ara. Maa r ccal xr crcal r

al maa ccal ac crac a ur a crac

lvral m gvrm ccal rqurm. Ac al

lc arra m ra ur a ra v CoR

ru rac w r w crac xrc a r rl avl Cbt a l-ac lar. ovrall, ur aa ca a ac

ca muc mr ur a CoR ar ra rrm r crac

wrk cvl.

Strategic management of the COR workforce

Rc oc Maam a bu (oMb) lc rqur ac

a racall maa r CoR ur a av u

ml w r kll cvl vl a maa ccal

ac crac.31 i a, gAo av ac cuc rac

uma caal la a clu ra acqu wrkrc aa.32

CoR cmr a crcal wrkrc r gvrm rall, a call r

ac a rl crac rrm r ur a ca r r

m. A a crcal wrkrc, CoR ul ccall clu ac

31 opp plc Lr 05-01.

32 U.s. gvrm Accual oc, Framework or Assessing the Acquisition Function at FederalAgencies, Wa dC, smr, 2005.


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rac uma caal la. t uma caal la ul cvr u uc

a w ma CoR ac w a uur, a wa cmc

CoR ul av. Ac al kw w r curr CoR ar,

wr ar lca, a wa cmc currl av. all, ac

al cmar wa a wa av, a vl la

allva a rcm CoR umr a cmc, arcularl c

-r CoR wll ll rr.

t oc ral prcurm plc (opp) Ac rqur a ac rack

CoR a CoR ra.33 praccall ak, cul, ml,

racall maa a wrkrc wu rma. sm ac w

wrk w a vl auma m rack CoR ra a m

a m a rack wr CoR wrk. Ma r ac w wrk

w av ral accl aa m r rack w r CoR

wr, wa ra a, a wr wrk. sm ac rr a

a lca r CoR wul rqur ru, a, ar

l vr curr crac. Ac mu vrcm uamal rlm

a lca r CoR ar cvl maa m a acrcal wrkrc.

t ar, a rack CoR muc mr cul a rack r

cm ral wrkrc. M ml ca ral

r gvrmw gral scul r (ccua) c maa

ac rl c a oc prl Maam (opM).

eml w CoR rl, r a, ar al

ccua c a rrm crac u a a aal, a c,

r r j.

opp plc Lr (05-01) rqur ac lca a um aa rCoR ral Acqu iu Acqu Carr Maam

irma sm (ACMis) Arl 1, 2007. t plc Lr al a a

err huma Rurc ira m (ehRi) vl opM wll

wrk ccr w ACMis rv ral wrkrc aa a rma

r ACMis. rm ur a, hR lcmakr ul urr a

vl a mcam r a rack CoR al w x hR

m. A ral alcal gvrmw m CoR, lk

aal rl rma, wul av avaa rv ral

ual gvrmw aa CoR a wul uul r a var ral

lcmakr.

t w c cul ak rm a c muc lk urvr

au r Cral prl daa l (Cpd) maa opM. t

urvr c l w urvr rl, u allw

33 t oc ral prcurm plc Ac (41 U.s.C. 433), a am ralAcqu Rrm Ac 1996, al call Clr-C Ac 1996 (40 U.s.C. 1401(3))r ral cvla ac a t d Acqu Wrkrc imrvm Ac (dAWiA) (10U.s.C. 1741-46) r darm d.


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ml ra r ccuaal . U urvr c al

w ccuaal r r allw u r-l urvr w

ar rl rmarl r maa wrkrc a c au $100 ll

r ar alar a .34 i m raal cr a mlar c

CoR, w rv r-l vr mr a $325 ll

crac r ar, u w, r r maam a carr ur, ul

ra r ccuaal .

Managing CORs day-to-day to do their contracting work

Ac mak cc c au CoR vlvm crac a ca

ac w wll CoR ar al r crac wrk. r xaml, k ac

rrav uc a CoR urvr, rram maar, a crac cr

mak a var c vr a a c w CoR ar al r

wrk. t ral lc wc CoR ar vlv a arcular crac,

rm w CoR ar r vlv a arcular crac, a cc

ak a CoR mu a arcular crac, rm w muc m CoR

ar al wrk r crac u, ra CoR rrmac

r crac wrk, a maa CoR rac w r ral

ml w crac wrk.

Seection and assignment of CORs

W ak CoR ll u w lv wr lc wrk a

arcular crac c r mr ra rm a urv l. M

CoR (70 rc) rr a at least one ra wr lc

CoR wa cau r ccal wrk r qualca. Alm -r

(32 rc) CoR rr a r ccal wrk r qualca wa

onlyra wr lc. Ju vr al (52 rc) ur r

rr a r rram rl wr ra a

lc. A, alm 80 rc CoR rr a kwl a xrc

w crac wa a acr r lc. i a, w ak au

wa acr mac r crac wrk, 70 rc ur CoR rr a

r wrk lca rla wr crac wrk wa rrm

acla r al rrm r crac rla u. nal, CoR

w ra wrk lca lca a a acual acr a mac r wrk, al

rr r crac ucm.

t rcv ra r CoR lc u a wl m ac ma

lc CoR a raal crra, r ac ma cu

mr vrl CoR ccal a crac kll a xrc.

i a, ur rac w ac rval a m ac av

al crra r lc CoR wl r ac av crra.

34 hr w u w r-l urvr w rv al vr wrkrca maar a r xcuv w ar rl r vr wrkrc c a wll aul, ur, acl a r c rqur ru rram.


50/87



gv lvl rl CoR av vr crac, ma

aval r ac (a r gvrmw lcmakr) cr

al crra r lc CoR. sm crra l AR r

lc crac cr, uc a crac xrc a ra, m

uul r CoR. Aal crra r lc a a CoR ul

clu rqur xr arcular ucal r rram ara, a

ra r acr, uc a wrk lca.

When CORs shoud first be invoved in a contract

guac u a CoR ul r cm vlv crac arl

crac rc; rral, a ac cmla

a a arcular r rvc ru a crac.35 W CoR ar

vlv arl rc, ca l ur a ccal ac

crac vlm ar crrcl. A cu arlr, wll vl

crac ar ar maa a ar mr lkl rul r ucm. A

uaal rr CoR (73 rc) rr a call cam

vlv crac ur r-awar a crac. i a, CoRw rr r cm vlv r crac awar al rr r

qual crac lvral. Arxmal 78 rc w ar

wrk crac r awar rr av -qual lvral

vru arxmal 69 rc w ar wrk crac ar

awar.36 Accrl, m aval r ac k a CoR arl

crac rc.

Contracting tasks

bcau ra var ak a CoR call rrm crac,

w wa kw rquc rrm cra ak wa rla rcrac ucm. Accrl, w ak ur CoR rr rquc w

wc rrm a var r- a -awar crac ak.

CoR w rrm cra r-awar ak mr rqul al rr r

crac ucm a la ur ucm ara. Table 6 w

rr CoR w rr a alwa r rqul rrm a

var r-awar ak rr c rquc. t m rqul

rrm r-awar ak, rrm 65 rc ur CoR, wa al

rqurm a wr soW. t ra m mra

ak r CoR rrm, a crac rc w

gvrm mu accural a cmll cr ccal (a r)

crac rqurm. CoR ar rl r ur a ccal

35 t ral Acqu iu, Contracting Ofcers Technical Representative (COTR): TrainingBlueprint, Wa, dC, 2003.

36 t ra rfc l crac ucm qual lvral. hwvr, acu arlr, l au 52 rc CoR ra r crac a acv all ur cracucmqual, cml, ml, a cmulaul.


51/87



rqurm ar cr accural a cmll soW. W

cvl, cracr ar r al ura rqurm a

u rar a um r ral. t rul crac clarr a l

r mrra a rlm. t crcal ak al rqur CoR

m k au xacl wa xc cracr. t,

ur, ma mak CoR mr kwlal au crac r wll

vr a ma rla acr vlv .

or r-awar ak rrm a la -al ur CoR clu

rcmm wrk crac, a cracr a rrmac,

rca u , a ma c. Urual, xc r al

rqurm a rar soW, l a al urv CoR rr a

ar alwa r rqul vlv ma crcal r-awar acv m

rla ccal ac crac. i arcular, l 41 rc l

crac jcv a cv, 45 rc vl r al ral

rvw crra, a 45 rc arca cracr lc rc. t

rma r-awar ak wr rrm muc l rqul r

CoR, u ak ca fuc crac ccal rqurm r c.

Tabe .

Percent of CORs who frequenty or aways performed pre-award tasks

Percent Pre-award task

65% eal rqurm, rar rqurm cum,wr sam Wrk (soW)

55% ema c, calcula al gvrm c ma

54% Rcmm r c wa cc wrk crac

51% rca u r u , rcmm u ac

50% A cracr a rrmac

45% dvl a/r al ral rvw crra

45% parca cracr lc rc

41% d crac jcv a cv

31% drm crac m a/r

28% Cmmuca w cracr rr awar

24% Cuc mark rarc rqurm r l cracr

20% Cuc c- aal

rm ur rcv, ac, a arcular crac cr, ul aak CoR a ar crcal r ur v crac ucm. i

arcular, ak ul clu vlv ccal ac

crac rc uc a al rqurm, crac jcv

a cv, vl r al ral rvw crra, a arca

cracr lc rc. t ak rqur CoR xr a ar

mra r ur a wll vl crac, wc ur mra r

cv crac vr la r crac ucm.


52/87



i ral, CoR w rr -awar ak mr rqul al

rr mr v crac ucm. Table 7 l -awar ak a

rr CoR w rr a rrm ak rqul r

alwa. t m rqul rr -awar ak vlv ccal a

amrav ac vr crac, uc a valua a cr

cracr rrmac, rvw a arv vc, rv ccal

uac, a ac a la w rram, Co, a cracr.t ccal vr rv CoR ar a crac awar crcal

ur crac ruc rul a m gvrm ccal

rqurm.

Tabe .

Percent of CORs who frequenty or awaysperform the post-award task

Percent Post-award task

74% evalua a/r cr rrmac cracr

71% Rvw a/r arv vc

71% prv ccal uac r rra ccal rqurm cracr70% Ac a la w cracr a Co, r w cracr a maam

68% Rvw a acc r rjc lvral

67% Cra a rack lvral

66% dcum crac ac, ur arra crac rcr ar maa

64% drm a/r cr a w wrk w c crac,r a c m

62% A m gvrm crac la cracr

61% track a rr crac la

60% Mr a--a wrk cracr

57% Rvw a/r arv cracr wrk la

57% su, a, a/r rcmm crac mca

44% Maa cracr u r acc gvrm rr a acl

42% Arv a/r cr u r crac ac, rqu -la u

40% Cuc rram maam rvw

36% Rr uc cfc r a/r rau, wa, a au

33% Rvw cracr ml rum, ur rl cur

31% surv r w r mr ak av

A w a r-awar ak, ac ul a CoR -awar ak a m cvl u CoR xr. Wl CoR ma

rrm all l -awar ak r ac crac, ul

a a ar m rla ccal ac crac. t

ak wul clu valua cracr rrmac, rv ccal uac

cracr, rvw a acc lvral, rm a wrk

w c crac, mr a--a wrk cracr,

u crac mca, a cuc rram rvw.


53/87



o crcal -awar ak rv cc mrr uc cfc

r a/r rau, wa, a au. ovr -r ur CoR (36 rc)

rr a rqul r alwa -awar ak. Mr mral,

a w Figure 7, CoR w rmal la aur ar alm wc

a lkl rr a rqul r alwa ak a ar CoR w

ar vr rmall la r aur. t a rmal la

aur rla rquc ak rr uccfc r a/r rau, wa, a au arcularl rk. i

mra a ac ak vr ac ur, rm, a cura

CoR rr uc acv rla crac wc wrk.

dla clarl a a v rla w CoR rr a rc

r gvrm rr a rau, wa, a au. t

a wrul ra, ara rm rular rqurm, alwa rmall

la aur CoR.

Figure . COR reports of waste, fraud and abuseby frequency of forma deegation

44%

24%

0%

10%

20%

30%

40%

50%

Always Delegated Never Delegated

i ral, CoR w rr mr rqu rrmac all r-awar a

-awar crac ak al rr r crac ucm a la

ur ucm ara. trr, CoR ul rrm all ak

mr rqul. A w lar arlr, r a CoR m

rrm ak mr rqul w av rmall la r

crac aur.

Time avaiabe for contracting work

t amu m CoR crac rl var wl. A ll

vr -r ur CoR (35 rc) rr wrk crac 25 rc

r l r m. Au 40 rc CoR wrk crac w 26

a 75 rc r m. Au -quarr ur CoR rr wrk

crac 76 rc r mr r m. hwvr, rca m


54/87



crac u rla r crac ucm. s, a

rar rca r m crac carl mrv

ucm.

irl, CoR rc av u m v crac-

rla wrk wr rla amu m uc wrk.

Rarl w muc m CoR rr v crac u,arxmal 28 rc rr a ll av u m. M

mral, CoR w rr av u m r crac wrk

rr mr v crac ucm a w rr av

u m. A Figure 8 ca, CoR rc av u m

r crac wrk vl ac crac ucm. t u

al valu ac l CoR a r rc w

muc m av r crac wrk, a l CoR alac r

crac wrk rla r -CoR wrk.

Figure . Positive contract outcomesby perception of time for contracting work

0%

20%

40%

60%

80%

100%

84%81% 80% 79%

71%69% 68% 67%

ContractTimeliness

Have enough time

ContractQuality

ContractCompleteness

Do not have enough time

ContractCost

Rating CORs for performing their contracting work

t l CoR accual r r crac wrk, ac mu r ur

a CoR ar clarl rm au r rl a aur, a

a r rrmac cml u. t al cmmuca

aur a rl a CoR a r a arcular crac xr

ru rmal la crac aur CoR. hr w

wll cu r wc ac ra CoR rrmac r

crac u.


55/87



M ur r (80 rc) rr a ar ra, r rw

l accual r rrmac r CoR u. A Figure 9 w,

CoR w ar ra rrmac r crac wrk al rr

mr v crac ucm, call rm ml, qual, a c,

a CoR w ar ra r crac wrk. t aa ca

a m ac cr CoR wrk mraa la r ra

ur.

Figure . Positive contract outcomes by whether or not agencies rateCORs on their performance of contracting work

0%

20%

40%

60%

80%

100%

Rated on contracting work Not rated on contracting work

80%

71%

64%67%

Timeliness Quality Completeness Cost

78% 77% 76%76%

Wl racc valua r ra CoR rrmac r

crac wrk vl rla r crac ucm, wa clar arlr

a all CoR a rmall la aur rrm r

crac wrk. t ca a m CoR ar l rl r

rrm r crac wrk, u ar carl v aur

carr u u. i rr l ml accual r r wrk,

mu av rmal rl a aur r a wrk.37 t rcl

arcularl mra r CoR cau r rl ur a

gvrm wa rm ll llar crac.

earlr w w v rla w la aur a

crac ucm; r w w v rla w ra CoRrrmac a crac ucm. Ac mu ak ac cvl

l CoR accual r r crac wrk.

37 U.s. Mr sm prc bar, Rr Cmm pulc srvc, VlckrCmm, Wa, dC, 2001.


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Interactions with other Federa empoyeesinvoved in contracting work

CoR wrk w ma r ral ml rrm r crac

u clu rram urvr, rram maar, xcuv, Co, a

r ml a var r ccua. t rc CoR av

ml av a mra rla w wll CoR ar al rrm r rl crac rc. W CoR ra r

ml a cm, cal, a urv CoR wrk, w wul

xc ar r CoR rrm r crac uu av

a v c crac ucm. Cvrl, av wrk w ml

wm CoR rcv a l cm, l urv, a av qual

c cul mak CoR j mr callu av a al

av c crac ucm. i mr avr k crcumac,

CoR ma av r accml wrk a r ul ,

r ma rw av r av r vrcm cal lmma.

t r ma ak awa rm CoR al al w mr ccal

u crac, a u ca avl ac crac ucm.

M CoR (74 rc) rr a r urvr rv ur r r

crac wrk. smwa wr CoR (59 rc) rr ur rm

r r lvl maar. ol -al CoR rr ur rm ac

xcuv. t rc ruc lvl ur a w mv u ca

cmma ar cmm m raza a ar aru

lack r

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