Small BusinessChallenges
usgif.org
USGIF Small Business Advisory Working GroupMay 2017 White Paper
PrefaceTheUnitedStatesGeospatialIntelligenceFoundation’s(USGIF)SmallBusinessAdvisoryWorkingGroup(SBAWG)helpsoursmallbusinessmemberspreparetocompetesuccessfullyforcontractopportunitiesinthegeospatialintelligenceindustryandrelatedmarkets.Weprovideadviceandforumstoshareinformation,solutions,andopportunitiesbeneficialtoSBAWGmembercompanies.TheSBAWGcurrentlyincludesover100membersinterestedinsupportingtheGEOINTcommunity.ThisWhitePaperwasdevelopedinclosecoordinationwithsmallbusinessesthatprovideorwishtoprovideservicesandproductstotheGEOINTCommunity.Itlaysoutaseriesofsmallbusinesschallenges,impactsandrecommendationsthatcanbeusedasaframeworktoincreasesmallbusinesssupporttoNGAandenabletheNGASmallBusinessProgramsOffice(SBPO)tomeetthesmallbusinessgoalsestablishedforNGAbytheSmallBusinessAdministration(SBA).
ExecutiveSummaryThisWhitePaperdocumentsthechallengesSmallBusinessesconfrontinattemptingtoconductbusinessandaccesscontractingopportunitiesattheNationalGeospatial-IntelligenceAgency(NGA).WeaimtopartnerwiththeNGASmallBusinessProgramsOffice(SBPO)tosupportNGA’smeetingtheSmallBusinessgoalssetforitbytheSmallBusinessAdministration(SBA),therebyimprovingSmallBusinesspresenceatNGAandprovidingNGAwithhighqualityproductsandservicesthatareflexible,innovative,andreasonablypriced.WefullyunderstandtheSBAtargetsarenotmandatory,butapplaudtheexpressedintentoftheDeputyDirectortoencourageopportunitiesforSmallBusiness.WebelievethisincludesbuildingarobustpooloffullyqualifiedandclearedsmallbusinessestojustifytheirsupporttoNGA’smissionandtheircontributionstomeetingSmallBusinessgoals.TheUSGIFSBAWGappreciatestheeffortsNGAalreadyhasmadeoverthepastfewyearstoencouragesmallbusinessestoengagewithNGAandtheSBPO,including:
• PrimeOpportunitiessuchasEmerald,EnterpriseSupportforAdministrativeServices(ESAS),VisualCommunicationsSupport(VCS),AllLeadersCoachingProgram(ALCP),andTundra.
• GEOINTSolutionsMarketplace(GSM).• NationalGeospatial-IntelligenceAgency(NGA)MentorProtégéProgram.• NGASmallBusinessClearanceProgram.
Wehaveidentifiedeightchallengesandsuggested24actionswithtangiblebenefitstobothNGAandSmallBusinesses.WeofferthisframeworkofchallengesandrecommendationsasthefirststepinbeginningadialoguewiththeSBPO.WehopeitwillalsobeofdirectinteresttoNGAleadershipandcontracting,security,financeandprogramofficials.
SmallBusinessChallengesandSuggestedActions
1.SmallBusinessHaveDifficultyUnderstandingtheAcquisitionLandscapeatNGA
Recommendation1:ProvideanAnnualReportreleasabletoindustrycontainingperformanceinformationonSmallBusinessesatNGAsuchascategory,typeofwork,percentageofcontract,dollarprojected,dollarsexpended.
Recommendation2:ProvideanAnnualSmallBusinessForecast.
Recommendation3:RevamptheSBPOwebsitetoimprovetheorganizationanddetailedinformationtomeetSmallBusinessneeds.
2.TheNGASmallBusinessProgramOfficeShouldIncreaseStaffingtoRespondtoGrowingSmallBusinessDemand
Recommendation4:AssessrequirementstoprovidetheNGASmallBusinessProgramOfficewithmoreresourcesandskilledstafftoexecuteitsresponsibilities,includingprogramevaluationandassessment,metricsdevelopment,collection,andperformancemonitoring,businessanalytics,datamanagement,andreporting.
Recommendation5:ConsideradedicatedcontractorTaskOrderforSBPOcontractsupport.
Recommendation6:WhenpreparingtherequirementstosupporttheNGASmallBusinessProgramOffice,weighbenefitsofusinghourlyorpart-timesupportratherthanFullTimeEquivalents.
3.CurrentFacilityClearanceProcessesCreateaBarriertoNGAAccessRecommendation7:TheSBPOshoulddevelopacommunicationstrategytoinformtheSmallBusinesscommunityabouttheintent,process,anddetailsoftherevisedNGAFacilityClearanceSponsorshipProgram.
Recommendation8:WorkwiththeSBAWGtoreviewtheprosandconsforNGAandSmallBusinessofNGA’srevisedFacilityClearanceSponsorshipProgram.
Recommendation9:WorkwiththeSBAWGtoseekbetterwaystoaccommodatepersonnelclearancesforSmallBusinessmanagementpersonnelandapercentageofqualifiedcandidateSCIsponsorship.
4.SecurityChallengesContinueEvenafterContractAwardOpportunitiesforSmallBusiness
Recommendation10:CollaboratewithindustrytoresolvechallengesinvolvingNGASecurityprogramsandpolicies.
5.NGASmallBusinessOpportunitiesNeedImprovementRecommendation11:ResearchtheimpactofbundlingonSmallBusinessparticipationduringthepre-acquisitionphase.
Recommendation12:CreatemoreopportunitiesforSmallBusinessestoPrimethroughtrainingandeducatingNGAContractingandGovernmentProgramManagersandcreatingtheprocessestosupportsuccessfuloutcomes.
Recommendation13:Developalong-termacquisitionforecast(18–24month)identifyingcontractsendingandexpectedopportunities.
Recommendation14:EstablishandmaintainOrganizationalConflictofInterest(OCI)rulesandguidelines.
Recommendation15:GiveSmallBusinessthesamevoiceLargeBusinesseshaveininfluencingaprocurementthroughestablishmentofapre-acquisitionmeetingbetweenthesmallbusinessesthatrespondedtoaRFIorSourcesSoughtandtheevaluatorsfollowingtheirassessment.
6.SmallBusinessUtilizationGoalsShouldbeMoreStronglyEnforcedRecommendation16:InformSmallBusinessesandNGAGovernmentstaffofPrimePartnerSubcontracting;Goals,targetsocio-economiccategories,PerformanceMetrics,Opportunities,andPastSuccesses.Requiresix-monthreportinganallprimecontractswithSmallBusinesssubcontractingplansandpublishthisinformationontheclassifiedARCforaccessbyallwithaccesstotheARC.
Recommendation17:IncludefinancialpenaltiesincontractsforfailuretomakeSmallBusinesssubcontractinggoals.Theseneedtobeassessedyearlyandmustbesignificantenoughtoenforcethegoals.
7.ExpandtheMentorProtégéProgramRecommendation18:PostdataonhowmanycompanieswillbeprovidedaccesstotheNGAMentor-Protégéprogrameachyearandthecurrentlistofapprovedcompanieswaitingforfunding.
Recommendation19:ProvideanoverviewtoSmallBusinessesinterestedinamentorprotégéopportunitywithNGA,thenewMentorProtégéProgram,andNGA’splanstosupportitsimplementation.
8.ImproveNGAOutreachandInteractionwithSmallBusinessRecommendation20:AddtheSmallBusinessNAICSCodesandSocioeconomiccategoriestotheGeospatialSolutionsMarketplace(GSM)database.
Recommendation21:ConductMonthlyNewSmallBusinessWelcomeSessions.
Recommendation22:ConductQuarterlyCurrentSmallBusinessStatusMeetingwithSmallBusinesseswithprimeorsubcontractsatNGA.
Recommendation23:ConductAnnualSmallBusinessConferenceandSmallBusinessShowcase.TheNationalSmallBusinessWeekisanexcellenttimeforthisevent.
Recommendation24:HostIndividualSmallBusinessSocio-EconomicCategoryEventsinpartnershipwithUSGIF.
1.SmallBusinessHaveDifficultyUnderstandingtheAcquisitionLandscapeatNGA SmallBusinessChallenge:SmallBusinesseshaveextremelylimitedresourceswithmultiplefunctions,suchasbillablework,businessdevelopment,andproposalwriting,beingperformedbyeachemployee.AccesstodatatofacilitatetheunderstandingoftheNGAopportunitylandscape,SmallBusinesspartners,andcompetitiveprocessesiskeytomakinginformedbusinessdecisions,planningopportunitypipelines,andallocatingscarceresourcestoeffectivelyrespondtoSourcesSought,RequestsforInformation(RFIs),andRequestsforProposal(RFPs).ImpactStatement:LackofinformativedatahampersSmallBusinessmanagersfromeffectivelymakingdecisionsaboutplanningforandrespondingtobusinessopportunities.Thislackofreadilyavailableinformationbeginsacounterproductivecycle—fewersmallbusinessesarepreparedtorespondtoSourcesSoughtandRFIs,whichthencanreducethenumberofacquisitionssetasideforSmallBusinesses,fewerSmallBusinessessubmittingproposals,andfewerSmallBusinessesbeingawardedprimecontracts.Additionally,RFIresponsesarenotfullyeffectivenoranefficientmeansofconveyingafullunderstandingoftheresponseduetohighlyproprietaryinformationrestrictions.NGAbecomeslessabletomeetSBAtargetsandismorelikelytooptforunrestrictedsolicitationsresultinginawardstolargecompanies,whichcanbemorecostlyandlessagile.Recommendation1:ProvideanAnnualReportreleasabletoindustrycontainingperformanceinformationonSmallBusinessesatNGAsuchascategory,typeofwork,percentageofcontract,dollarprojected,dollarsexpended.
BenefitstoNGA:EncouragesSmallBusinessconcernstoparticipateandbuildstheSmallBusinessbasetosupportNGAneeds.BenefitstoSmallBusinesses:EnablesbusinessconcernstoinvestSmallBusinessresourcestodetermineiftherearesuitableandsufficientopportunitiesforSmallBusinessatNGA.
Recommendation2:ProvideanAnnualSmallBusinessForecast.RecommendmodelingtheannualsmallbusinessforecastaftersuccessfuleffortsattheStateDepartmentandDepartmentofHomelandSecurity.Theircurrent2016BusinessForecastscontainthefollowingdetailedandveryhelpfulcontentstoinformsmallbusinessesofopportunitiesandspecificallyhowtoengageinrespondingtothem.
• RequirementsDescription• OfficeSymbol• NeworRe-compete• NAICSCode• ExtentofCompetition(SocioEconomicCategory)• EstimatedValue• IncumbentContractorInformation• PeriodofPerformance• TargetAward• PlaceofPerformance• GovernmentPointofContactInformation
BenefitstoNGA:EncouragesSmallBusinessconcernstoparticipateandbuildstheSmallBusinessbasetosupportNGAneeds.BenefitstoSmallBusinesses:ProvidesbothLargeandSmallBusinesseskeyinformationtosupportplanningandallocatinginternalresourcesforbusinesspursuits.
Recommendation3:RevamptheSBPOwebsitetoimprovetheorganizationanddetailedinformationtomeetSmallBusinessneeds.Thisincludesensuringthatupdatesaremademonthlyandinclude:
• NGASmallBusinessReports• NewSBprograms• NGASmallBusinessSecurityProgram• Policychangese.g.MentorProtégé• SmallBusinessNews• SmallBusinessEvents• LinkstospecificsmallbusinessinformationontheGSM• Linkstounclassifiedopportunities• ListofSmallBusinessAwardsatNGA
BenefitstoNGA:NGAGovernmentStaffTrackingSmallBusinesseffortswillhaveonestorefronttoworkwith.BenefitstoSmallBusinesses:OnestopforNGASmallBusinessneedsaddstoefficiencyandclarityofdoingbusinesswithNGA.
2.TheNGASmallBusinessProgramOfficeShouldIncreaseStaffingtoRespondtoGrowingSmallBusinessDemandSmallBusinessChallenge:ObtaininginformationonNGAanditsacquisitionsandmakingSmallBusinesscapabilitiesknowntotheNGAcommunityiscriticaltobuildingbusinessinthecommunity.CurrentlytheNGASmallBusinessOfficehasalimitedgovernmentandcontractstafftosupportassignedresponsibilitiesinternaltoNGAandtosupportnewSmallBusinessesandcurrentSmallBusinessessupportingNGA.ImpactStatement:CurrentSmallBusinessOfficestaffingmakesinitialcontact,knowledgebuilding,andsmallbusinessprogramresourcingproblematic.NGAisalargeorganizationwithalargebudgetthatinterestsmanysmallbusinesses.LackofresourcingimpactsthequalityofsupportandthustheparticipationofsmallbusinessesinNGAacquisitions.Recommendation4:AssessrequirementstoprovidetheNGASmallBusinessProgramOfficewithmoreresourcesandskilledstafftoexecuteitsresponsibilities,includingprogramevaluationandassessment,metricsdevelopment,collection,andperformancemonitoring,businessanalytics,datamanagement,andreporting.
BenefitstoNGA:ImprovestheabilityfortheNGASBPOtoachieveassignedroles,responsibilities,andmeetobjectives;ImprovesSmallBusinessParticipation.BenefitstoSmallBusinesses:ProvidesadditionalresourcestomeetwithsmallbusinessestoexplaintheNGAlandscapeandsmallbusinessprograms;ResultsultimatelywillbeincreasingSmallBusinessutilization.
Recommendation5:ConsideradedicatedcontractorTaskOrderforSBPOcontractsupport.
BenefitstoNGA:ProvidesfocusonachievingNGASmallBusinessOfficeobjectives.BenefitstoSmallBusinesses:ProvidesfocusonachievingNGASmallBusinessOfficeobjectives.
Recommendation6:WhenpreparingtherequirementstosupporttheNGASmallBusinessProgramOffice,weighbenefitsofusinghourlyorpart-timesupportratherthanFullTimeEquivalents.
BenefitstoNGA:MinimizesNGAcostsbyusinganhourlyapproachviceFTEs.BenefitstoSmallBusinesses:Enableshiringpart-timeexpertiseforspecifictasks,suchasassessmentsandreporting,vicegeneralskillsforoneFTE.
3.CurrentFacilityClearanceProcessesCreateaBarriertoNGAAccessSmallBusinessChallenge: SecurityclearancesarefundamentaltotheNGAmission,buttheprocessfornominatingabusinesstogainaFacilityClearancethroughtheDefenseSecurityService(DSS)precludesequalopportunityforcompetition.TheDSSrequirementthatbusinessesbesponsoredeitherbythegovernmententityissuingaprimecontractortheprimecontractorthatissubcontractingwiththeSmallBusinessisa“Catch-22”—businessesneedaclassifiedcontracttobeabletobesponsoredfortheFacilityClearancetocompeteforanNGAcontractorbeasubcontractortoalargebusiness.Somelargebusinessesdeclinetosponsortheirsubcontractorstoavoidthembecomingcompetitorsforthework.LeadersandstaffinmanySmallBusinessesinterestedinsupportingNGAhavehadjobexperienceandsubstantialcareersingovernment,military,andindustryservingclassifiednationalsecurityprogramsandpossesscurrentpersonnelclearances.Theplayingfieldneedstobeleveledtogivesmallbusinesses—atleastthosewithexperienceintheclassifiedenvironment—anequalchancetogainaccesstoandcompeteforworkatNGA.ImpactStatement:WithoutaSmallBusinesssecurityprogramtohosttheFacilityClearanceandPersonalSecurityclearancesthereisanimpacttobothSmallBusinessesandNGA.SuchaprogramwouldprovideamorelevelplayingfieldtoqualifiedbusinessesandprecludingNGAfromcapitalizingonSmallBusinesseswithknowledge,capabilities,andinnovativesolutions. Recommendation7:TheSBPOshoulddevelopacommunicationstrategytoinformtheSmallBusinesscommunityabouttheintent,process,anddetailsoftherevisedNGAFacilityClearanceSponsorshipProgram.MinimalinformationisbeingpresentedtotheSmallBusinesscommunity.ItshouldincludemetricsthatwillhelpSmallBusinessunderstandwhethertheprogramactuallyoffersthemtheopportunitytodobusinesswithNGA.
BenefitstoNGA: ProvidesasystematicmethodologyforcommunicatingwithSmallBusinessesandmayreducephonecallsandmeetingrequestsaboutthetopic.BenefitstoSmallBusinesses: ProvidesclarityforSmallBusinesstounderstandwhethertheycanorshouldmaketheefforttoparticipateintheprogram.
Recommendation8: WorkwiththeSBAWGtoreviewtheprosandconsforNGAandSmallBusinessofNGA’srevisedFacilityClearanceSponsorshipProgram.ThiscouldincludeacomparisonwiththeNationalSecurityAgency(NSA)’sProvisionalIndustrialSecurityApproval(PISA)SponsorshipProgram,whichprovidesameansforalimitednumberofsmallbusinessestobeclearedforcompetingforclassifiedNSAcontracts.ItisnotasbeneficialtoSmallBusinessbecauseitdoesnotprovideanactualDSSFacilityClearance.
BenefitstoNGA: ImprovesNGA’sknowledgeofSmallBusinessdynamicstoenableeffectivecommunications,developmentofmutuallybeneficialsolutions,andencouragementofinnovativeSmallBusinesscontributionstoNGA.NGAwouldbe
abletoutilizethelessonslearnedbyNSAandnothavetocreateanewpolicyfromscratch.BenefitstoSmallBusinesses: ProvidesSmallBusinessesreal-worldinsightintocurrentandpotentialNGAneedsandopportunitiestosharetheirconcernsandrecommendationsformutuallybeneficialprograms;PositionsSmallBusinessestobeasuccessfulIndustrypartnersandofferinformedsolutions.
Recommendation9:WorkwiththeSBAWGtoseekbetterwaystoaccommodateSmallBusinessmanagementpersonnelclearances.Someagenciesworkonacase-by-casebasis;others,liketheNationalSecurityAgency(NSA)’sInfrastructureSecurityProcess,allowanadditional10percentofpersonnelsecurityclearancebilletstoprovideaccessforoverheadstaff.Thisprogram,whichappliestobothLargeBusinessprimesandSmallBusinesssubcontractors,ismorebeneficialforlargercontractsandmaynotbesufficientinallcases.AgoalshouldbetomaintaintheGovernment’sinvestmentinitsclearedcontractorworkforce.
BenefitstoNGA:MaintainsacadreofSmallBusinesseswithclearancesandexperiencetomeetnew,ongoing,andsurgerequirements.BenefitstoSmallBusinesses:AllowsSmallBusinessestomanagebillablestaffperformanceandbetterunderstandGovernmentneeds.Diminishesseekingsidedealstomaintainpersonnelclearances.
4.SecurityChallengesContinueEvenafterContractAwardOpportuntiesforSmallBusinessSmallBusinessChallenge:SmallBusinessesthataresuccessfulinsecuringworkonacontractconfrontevengreaterchallengesnavigatingNGA-specificsecurityadjudicationprocesses,evenwhentheyarecrossingoverclearedstaffwithactiveTSSCIclearancessponsoredbyotherDepartmentofDefenseandIntelligenceCommunityagencies.NGA’scrossoverprocesshasbeenreportedbyindustrymembersinextremecasestotakeoverfivemonths;thisnotonlyimpactstheSmallBusiness’scostsandretainingproposedcandidates,butalsotheNGAprogrammanager’sabilitytofulfillmissionandcontractrequirementsandadheretoplannedexpenditureratesandtimelines.Securityonboardingcomplicateslargebusinessesaswell,butdelayscanbecatastrophicforSmallBusinesscontractswhere1FTEcanaffectalargerpercentageoftheirworkandrevenue.Thefollowinghighlightssignificantcomponentsintheapprovalprocess:
• NGA’seNomportalallowscontractorstosubmittheirpersonneldirectlyovertheInternetforanNGAbadge,SCIadjudication,andIndoctrinationbriefing.Tobesubmitted,thecandidatemusthaveanactiveTSwithaninscopeinvestigation(6yearsorless).
• TheFacilitySecurityOfficer(FSO)forthePrimecontractisresponsibleforsubmittingallcandidates.SubcontractorFSOsmustprovidetheiremployees’informationtothePrimeFSOsothePrimemayservicetheirclearancesintheJointPersonnelAdjudicationSystem(JPAS)andsubmitthemforthecontract.EachPrimecontracthasanFSOidentificationnumber(FSOID)assignedtoensurethatcandidateeNomsubmissionsgototheappropriateCORforapproval.AnFSOwithtwoPrimecontracts,forinstance,willhavetwodifferentFSOID’s.
• TheContractingOfficer’sRepresentative(COR)mustbeawareofwhowillbesubmittedinadvanceandisthefirstlineofapprovalforthesubmission.
• AfterCORapproval,NGAPersonnelSecurity(PERSEC)adjudicatesthecaseand,ifnoissuesarefound,approvesthecandidatetobebriefed.Ifawaiverorconcernisfoundduringadjudication,investigationandapprovalcantakemonths,eveniftheindividualiscurrentlyclearedandworkingonacurrentNGAcontractinanNGAfacility.
• AftertheCORcompletesaPersonofInterest(POI)tabinPeoplesoftforthecandidate,thePrimeFSOemailsWorkforceSupporttoscheduleanindoctrinationbriefing.
ImpactStatement:Theprocesscanbeimpededandslowedbyanumberofactions,including:
• SubmissionofcandidateswhoseclearancenotlistedinJPAS.RequeststoResearch,Recertify,orUpgrade(RRU)havetobesubmittedtouploadaclearancefromthehigh-sideICclearancedatabaseintothelow-sideJPAS.RRUscantakeweeksormonthsfortheDefenseManpowerDataCenter(DMDC)toprocess.
• SubmissionofcandidatesalmostoutofscopeorwhoareintheprocessofaPeriodicReinvestigation(PR).Resultsofthesesubmissionscandiffer,apparentlydependingonthejudgmentofthepersonhandlingthecase.SomeeNomsarerejectedandtoldtonotresubmituntiltheyarere-adjudicatedwhileothersareallowedtostayinprocess.ForcandidatesalmostoutofscopebutnotyetallowedtobesubmittedforaPR,NGAPERSECwillaskfortheirlastSF-86copywithsignaturepages.Ifthecandidatedoesnothaveasavedversion,theyareaskedtomanuallyfilloutablankSF-86template.
• AnonresponsiveCOR,whoselackofactioncandelaytheprocesssubstantially.• Apriorwaiverorconcern,whichrequiresadditionalandoftenlengthy
investigationtoadjudicate.• TypographicalerrorsintheeNomformbytheFSOorinthePeoplesoftPOItab
bytheCOR,whichcanholduptheprocessseverely.Thesedelaysresultinamulti-million-dollarannualimpactonNGAasaresultoflostproductivityanddollarsnotexpendedinthefiscalyearforwhichtheywereplanned.ForSmallBusinesses,theimpactislostrevenue,unsustainablecostsforcleared,butunbillableworkerssittingonthebench,andlostopportunityifindividualsleaveandtakejobsatothercompanies.IndividualswaitingforworkwithSmallBusinessesmayfaceweeksormonthsofunemploymentwaitingfortheclearancetobeapproved.Recommendation10:CollaboratewithindustrytoresolvechallengesinvolvingNGASecurityprogramsandpoliciesbydevelopinganagreeduponanddocumentedworkflowthatdefinestheprocess,addstimelinestotheprocessanddefinesescalationproceduresforwhentheprocessisnotbeingfollowed.
BenefitstoNGA:HelpsGovernmentprogrammanagerssupportmissionandcontractrequirementsandadheretoplansforexpendituresandtimelinestooptimizecontractperformance.BenefitstoSmallBusinesses:ReducesSmallBusinessrecruitingcostsandchancesthatproposedcandidateswilltakeotherjobs.ImprovesretentionratesandabilityofSmallBusinessestostayinbusiness.
5.NGASmallBusinessOpportunitiesNeedImprovement SmallBusinessChallenge:NGAAcquisitionsOfficialsandPrimeContractorsarenotsufficientlyincentivizedtoseekopportunitiestouseSmallBusinessesoncontractsortoaggressivelypursueSmallBusinesscontractingtargetgoals.SmallBusinessSetAsidesrequireextensiveresearchbySBPO,activeresponsefromSmallBusinesses,andanNGAAcquisitionculturethatembracestheSmallBusinesscommunity.SmallBusinessesfacemultiplechallengesforanumberofreasons:
• NGAexecutesmanylargedevelopmentcontractsforwhichsmallbusinessescannotcompeteasprimes.Asaresult,alargepartoftheNGAbudgetisofflimitstosmallbusinesspriming.
• NGAbundlesmultiplerequirementsintolargemulti-awardIndefiniteDelivery/IndefiniteQuantity(IDIQ)TaskOrder(TO)service-typecontractsthatagainaredifficultforSmallBusinessestoprime.BuildinglargeteamstomeetalltherequirementsandfundingalargeProjectManagementOffice(PMO)tomanagethecontractwithoutassuranceofreceivinganyworkisamajorriskandrequiresanup-front,largeoutlayofresources.
• Withoutalong-termNGAacquisitionplan,SmallBusinessescannotplantheexpenditureoflimitedresourcestobidandproposeonhigherprobabilitywins.Knowingwhatisinthepipelineforthenext12to24monthsallowsthemtoselectandrespondtoRequestsforInformation(RFIs)andSourcesSoughtwithmoreassurancetheywillbidontheRFPwhenissued.
• AconstantlychangingOrganizationalConflictofInterest(OCI)environmentmakesbidandno-biddecisionsextremelydifficult.Inthepastyear,last-minuteOCIchangeshaveresultedinSmallBusinessesbuildingandthendisbandingteamsandevendecliningtobidwheninfacttheywouldhavebeenexcellentprimes.SmallBusinessesmayrespondtoaRFIwithgreatqualifications,butwhentheRFPcomesoutwithadifferentOCIPlan,thebusinesscannotbid,thecompanyhasspenttensofthousandsofdollars,andNGAdoesnotgettheSmallBusinessresponseitwasexpecting.
• NGAappearstohaveacultureofSmallBusinessaversion.NGAprogrammanagers,CORs,andContractingOfficersareunfamiliarwithSmallBusinesscapabilitiesandarenotwillingtoriskalargecontractonthem.EveniftwoormoresmallbusinessesrespondtoaSourcesSoughtorRFIwithgoodqualificationsbutmaynotcoveralltherequirementsbythemselves,Governmentevaluatorsdonotconsiderteamingbenefitsandinsteadmaketheargumentthatitcannotbesetasidebasedonbadassumptionsaboutprojectrisk.
• LargeBusinesseshavehigher-levelcontactsandmorefrequentcontactswithNGApersonnelandarealwaystryingtoinfluenceand“shape”acquisitionstotheiradvantagebykeepingthemfrombeingsetasideforSmallBusinesses.TheMACSSRFP,forexample,dealtwithSourceareasinwhichmanySmallBusinesseshaveexcellentcapabilities,butitwasretainedasunrestrictedbecauseofsuccessfullobbyingbylargebusinesses.Mojaveisanothereffort
wheremanysmallbusinesseshavesupportedSMARTSandESMARTS,yettheleastcomplexFunctionalArea1wasonlypartiallysetasideduetolobbyingbylargebusinesses.
ImpactStatement:Smallbusinessesarenotfullyparticipatingintheacquisitionprocessofdiscovery,capture,andexecution,andNGAisnotachievingitssmallbusinessgoals.TherealimpactisthatNGAisnotgettingthebenefitofflexible,customeroriented,andcostconsciousbusinessesthatcanprovideinnovationandhelpNGAexecuteitsmission.Recommendation11:ResearchtheimpactofbundlingonSmallBusinessparticipationduringthepre-acquisitionphase.CreatereasonablysizedservicecontractsthatSmallBusinessescanbidandmanage.
BenefitstoNGA: IncreasessmallbusinessutilizationandprovidesNGAwithmoreflexibility,lowercosts,andgreatercustomersatisfaction;ResultsinmorecogentStatementsofWork(SOW)andfewerdisparateactivitiesgroupedintoonecontract.Makesproposalevaluationeasierandreducesprobabilityofprotests.Createssmallercontractsthatareeasiertomanage.BenefitstoSmallBusinesses: ProvidesSmallBusinesswithmultipleopportunitiestosupportNGA;enablesthemtoconcentrateonprocurementsforwhichtheyhavethemostexpertisevicecoveringthewaterfront;Greatlyreducesriskbynothavingtobuildahugeteamtocovermultipleareastheyarenotexperiencedinmanaging.
Recommendation12:CreatemoreopportunitiesforSmallBusinessestoPrimethroughtrainingandeducatingNGAContractingandGovernmentProgramManagersandcreatingtheprocessestosupportsuccessfuloutcomesfor;
• EmergingSmallBusinessPrime.• SmallBusinessPrimeOpportunitiesinallSocioEconomicCategories.• SoleSourceJustificationsforqualifiedSmallBusinesses(e.g.8a,EDWOB,
SDVOSB,and8m).
BenefitstoNGA: AidesNGAinachievingSmallBusinesstargets;Providescapabilityatacompetitiveprice;ProvidesNGAAcquisitionsmoretoolstoacquiretheinnovativeproductsandservicestheyneedinamoretimelymanner. BenefitstoSmallBusinesses: IncreasesuseofSmallBusinesscapabilities,efficiencies,andinnovations;EnablesSmallBusinessestointroduceinnovationsandknowtheycangetacontractquicklyvicebeingshuffledofftoalargeprimewhomaytaketheproprietaryinformationandaddcosttotheeffort.
Recommendation13:Developalong-termacquisitionforecast(18–24month)identifyingcontractsendingandexpectedopportunities.Updatethisonamonthlybasis.ThiswouldexpandonthecurrentMonthlyOpportunitypaperNGAissuesthroughtheARC.
BenefitstoNGA:ForcesNGAtobetterplanandexecuteitsacquisitionprocessbyestablishingmilestonesandschedulesforre-competesandnewacquisitions,thus
keepingacquisitionsonscheduleandnotrequiringextensionsonallcontracts;ProvidesamoreknowledgeablecontractorbasewhichwillmakethembetterpreparedtorespondtoRFIs,SourcesSought,andRFPs;Increasessmallbusinessparticipationbymakingmoreinformationavailabletosmallbusinesses.BenefitstoSmallBusinesses:EnablesSmallBusinessestoplanandbudgetforfutureacquisitions;EnablesSmallBusinessestoresearchanacquisitionandhelpshapeitforsmallbusinesssetaside;EnablesSmallBusinessestoconsiderteamingpartnersearlyinordertofillcriticalgaps.
Recommendation14:EstablishandmaintainOrganizationalConflictofInterest(OCI)rulesandguidelines.Donotchangetheseinthemiddleofanacquisitionanddonotchangethemastheyaffectothercontracts.
BenefitstoNGA:ProvidesNGAwithaknowledgeablecontractorbasewithstrict,enforceablerulestoensureimpartialityandfairness.EstablishesapoolofOCI-freecompaniesNGAcanfullytrust;Reducestheconstantback-and-forthtoexplainwhatisandisnotallowed;thistiesupresources,slowsacquisitions,andaddsriskofprotest.EnsurescontractorsthatsubmittedRFIresponsesunderoneOCIplancanactuallyrespondtotheRFP.BenefitstoSmallBusinesses:ProvidescertaintyonwhatSmallBusinessescanbidandwhattheyhavetostayawayfromsotheycanbetterplantheirtimeandmoney;DoesnoteliminateaSmallBusinessfromanacquisitioninearlyplanningwithoneOCIplanthatischangedatthelastminuteanddoesnotallowtimeforteaming.
Recommendation15:GiveSmallBusinessthesamevoiceLargeBusinesseshaveininfluencingaprocurementthroughestablishmentofapre-acquisitionmeetingbetweenthesmallbusinessesthatrespondedtoaRFIorSourcesSoughtandtheevaluatorsfollowingtheirassessment.ThiscanbeagroupmeetingledbytheOSBPChief.
BenefitstoNGA:ProvidesNGAwithfirsthandknowledgeoftheSmallBusinessesinterestedinbiddinganopportunitywithouttheinfluenceofLargeBusinesses;IncreasesfamiliaritybetweenGovernmentstaffandSmallBusinessowners/leadsandaddstobuildingGovernmenttrustinSmallBusinesscapabilities;IncreasesSmallBusinesscontractingasNGAGovernmentstaffbreakthroughthebarrierLargeBusinesseshavebuilttokeepSmallBusinessesfrompriming.BenefitstoSmallBusinesses:ProvidestheSmallBusinessesfeedbackandanopportunitytoclarifytheircapabilitiestotheNGAstaffmakingthedecisiononwhethertosetasidethework;ProvidessmallbusinessesanopportunitytointroducethemselvestoNGAstaffandbuildrapport;Increasesopportunitiestobid,win,andsupportNGA.
6.SmallBusinessUtilizationGoalsShouldbeMoreStronglyEnforced
SmallBusinessChallenge:SmallBusinessutilizationisoftenafactorinNGAcontracts,butitsenforcementissporadic.LargeBusinessesareseldompenalizedforfailingtoachievethegoalstheysetforthintheirproposals.KeystrategiesusedbyLargeBusinessesinclude:
• CountingthepercentageofSmallBusinessutilizationasapercentoftotalsubcontractingvicethepercentofthetotalcontract,whichisrequiredbySBA.ALargeBusinessthatonlysubcontracts20percentofitstotalcontract,butassigns10percentofthattoSmallBusinesseswillreportitachieved50percentSmallBusinessutilizationviceatrue10percentutilization.Ifthegoalis34percent,thebusinesswillclaimitoverachievedwheninfactitfailedby24percent.
• ForcingextremelylowratesonSmallBusinesssubcontractssothattheycannotprovidepersonneltothecontract.TheLargeBusinessprime,whichhasmuchbetterrates,canexplaintothePMandSmallBusinessProgramOfficethatitprovidedeveryopportunitytoitsmanysmallbusinesses,buttheywerenevergivenanyresumes.ThisnotonlyhurtsthebottomlineoftheSmallBusinesses,butblemishesthereputationofallSmallBusinesses,leadstolowersubcontractinggoalsnexttime,andreducesprimeopportunitiesforSmallBusinesses.
• BackloadingSmallBusinessutilizationinthelastyearofthecontractsotheLargeBusinesscanwriteinitsnextproposalthatitachievedtheSmallBusinesspercentages,butitwillnotstateitonlydiditinYearFive.
ImpactStatement:SmallBusinesssubcontractingatNGAdoesnotmeettheSBAgoalsbecausetheLargeBusinessesdonothaveabusinesscaseformeetingthesegoals,evenwhentheysignuptothemintheirproposalsandresultingcontracts.ThecostofnotmeetingthegoalsismuchlessthanusingSmallBusinessesontheircontracts.NGAsetsgoalsandrequiresthemincontracts,butdoesnotmeetthembecauseitcannotovercometheLargeBusinessimperativetomakeasmuchmoneyasitcan.ThisentailsinpartrestrictingSmallBusinessuse.SmallBusinesses,whosupportedtheproposalprocess,getverylittleworkandtheirreputationissulliedbyslanderfromtheLargeBusinesseswhoclaimtheSmallBusinessescannotstaffpositions.Recommendation16:InformSmallBusinessesandNGAGovernmentstaffofPrimePartnerSubcontracting;Goals,PerformanceMetrics,Opportunities,andPastSuccesses.Requiresix-monthreportingonallprimecontractswithSmallBusinesssubcontractingplansandpublishthisinformationontheclassifiedARCforaccessbyallwithaccesstotheARC.Allfederalagenciesarerequiredtodothistypeofreporting;NGAshouldfollowsuit.FAR15.304--EvaluationFactorsandSignificantSubfactors.Forsolicitationsinvolvingbundlingthatofferasignificantopportunityforsubcontracting,thecontractingofficermustincludeafactortoevaluatepastperformanceindicatingtheextenttowhichtheofferorattainedapplicablegoalsforsmallbusinessparticipationundercontractsthatrequiredsubcontractingplans(15U.S.C.637(d)(4)(G)(ii)).
BenefitstoNGA:ProvidesreadilyavailableinformationtothePMandSBPOonhowwellaprimeisdoingwithitsgoals;thiscanbeusedtochangeitsbehavior;IncreasesSmallBusinessesparticipation;expandsbaseofqualifiedSmallBusinesses;Providesevaluationdataforfutureproposalevaluationsonhowwellacertaincompanyhasmetitsgoalsinthepast,notjustthelastyear,butoverthefullfive-yearcontract.BenefitstoSmallBusinesses:Providesinformationonhowwelltheprimeisdoingwithrespecttoachievingitsgoalsand,ifnotgivingthemtheinformation,putspressureontheprimetodoso.AllowstheSmallBusinesstorebutanyclaimsmadebytheprimes,e.g.noresumesweresubmittedbySmallBusinesses;ProvidesinformationonallprimesinNGAsoSmallBusinessescanselecttheonesthatrespectSmallBusinessesutilizationforpotentialteaming;ImprovesSmallBusinessutilizationthroughoutthecontract.
Recommendation17:IncludefinancialpenaltiesincontractsforfailuretomakeSmallBusinesssubcontractinggoals.Theseneedtobeassessedyearlyandmustbesignificantenoughtoenforcethegoals.PenalizethemthepercentoffundingbywhichtheyfailedtoreachtheirgoalswillenforcetheuseofSmallBusinesses.Forinstance,agoalof25percentisunderachievedby10percentsothepenaltyis10percentoffundingforthatyear.
BenefitstoNGA:EnablesachievementofNGASmallBusinesstargetscostsavingsfromagreateruseofSmallBusinessesBenefitstoSmallBusinesses:IncreasesthechancesthatSmallBusinesseswillgettheworkpromisedwhensigningteamingagreements.
7.ExpandTheMentorProtégéProgram SmallBusinessChallenge:TheMentorProtégéprogramdoesnothaveenoughopportunitiesfornewLargeandSmallBusinesspartnerstoparticipatebecauseofinsufficientfunding,thelengthoftheprocess,andthenumberofcompaniesalreadyapprovedfortheprogram.TheMentor-ProtégéprogramisdesignedtomotivateandencourageLargeBusinessprimecontractorfirmstoprovidemutuallybeneficialdevelopmentalassistancetoSmallBusiness,Veteran-OwnedSmallBusiness,Service-DisabledVeteran-OwnedSmallBusiness,HUBZoneSmallBusiness,SmallDisadvantagedBusiness,andWomen-OwnedSmallBusinessconcerns.Itaimsto:
• Improvetheperformanceofcontractsandsubcontracts.• Fostertheestablishmentoflong-termbusinessrelationshipsbetweenlarge
primecontractorsandsmallbusinesssubcontractors.• Strengthensubcontractingopportunitiesandaccomplishmentsthroughthree
incentives.
Theprogram,whichisactivelysupportedbytheDepartmentofDefense,providesNGAwithgreaterassurancethataprotégésubcontractorwillbeabletoperformunderacontract.Protégéfirmsgainpastperformancecredentialsundertheguidanceandsupportofexperiencedmentorfirms.Otherbenefits,whichhelpsupporttheNGAmission,include:
• Acquiringanexpandedbaseofqualifiedsmallbusinesses.• Mitigatingtheeffectsofnecessaryandjustifiedcontractbundling.• Strengtheningsubcontractingopportunities.• Achievingapotentialincreaseinsmallbusinessprogramgoalaccomplishments.
ImpactStatement:Currentinformationprovidedonhowmanymentor-protégépartnershipsthatwillbefundedeachyearandthenumberofapprovedcompanieswaitingforfundingreducestrustinthedecisionmakingprocessandbusinesseswillingnesstoexpendscarceoverheadresourcestopursuethisoption.ThisdetractsfromtheattractivenessoftheNGAprogramtoLargeandSmallBusinessesinterestedinmentor-protégéoptionsandencouragesthemtopursueprogramsadministeredbyotheragencies.
Recommendation18:PostdataonhowmanycompanieswillbeprovidedaccesstotheNGAMentor-Protégéprogrameachyearandthecurrentlistofapprovedcompanieswaitingforfunding.
BenefitstoNGA:IncreasesattractivenessofNGAMentor-ProtégéProgramtopotentialapplicants.BenefitstoSmallBusinesses:Supportsthepartnershipdecision-makingprocessandallocationofscarceresources.
Recommendation19:ProvideanoverviewtoSmallBusinessesinterestedinamentorprotégéopportunitywithNGA,thenewMentorProtégéProgram,andNGA’splanstosupportitsimplementation.
BenefitstoNGA:Providesclearguidancetobothindustryandgovernment.BenefitstoSmallBusinesses:Supportstheplanninganddecisionmakingprocess.
8.ImproveNGAOutreachandInteractionwithSmallBusinessSmallBusinessChallenge:SmallBusinessesseekmorefrequentandinformativeinteractionwiththeNGASmallBusinessProgramOfficeandGovernmentcustomerstounderstandcustomerneeds,discussSmallBusinesscapabilities,andshapeopportunities.ThemoreinformedSmallBusinessesare,thebetterpositionedtheyaretoprovidetimelyandefficientsolutionsandcapabilities.BothSmallBusinessandtheGovernmentarebusyandseektominimizethetimeneededtoarrangetransactions.NGA’ssizeandsecurityrequirementshindergeneraloutreachandinformationsharingsothechallengeistoprovideconduitsintoNGAforinformationsharingatsecuritylevelsnecessaryforsmallbusinessestolearnandexchangeinformationabouttheirproductsandservices.ImpactStatement:MoreinteractionwithandincreasedSBPOavailabilitywouldpreventSmallBusinessfromspinningtheirwheelsineffortstolearnaboutNGAopportunitiesthroughotherchannelsandgivingup.Asaresult,NGAgainsareputationforbeing“unfriendly”toSmallBusiness,attractsfewerinterestedSmallBusinesses,andlosesbeingabletotakeadvantageofSmallBusinessflexibility,innovation,andlowercosts.Smallbusinessesinturnaredeprivedoftheopportunitytosharetheirvalue-addedproductsandservicestoNGAandtoresearch,bid,andperformworktosupportNGA.Recommendation20:AddtheSmallBusinessNAICSCodesandSocioeconomiccategoriestotheGeospatialSolutionsMarketplace(GSM)database.
BenefitstoNGA:Providesclearlyidentifiablesocio-economiccategoriestodiscerntop-levelmarketcapability.BenefitstoSmallBusinesses:EnablesSmallBusinessestobedistinguishedbytheircategoryandtheircapabilitybusinessareas;thissupportscapabilitiesmatchmakingandpartneringopportunities.
Recommendation21:ConductMonthlyNewSmallBusinessWelcomeSessions.
BenefitstoNGA:MaximizesGovernmentresourcestoholdonemeetingvicemanyindividualones;helpsGovernmentbalancecompetingprioritiesandresponsibilities.BenefitstoSmallBusinesses:Providesallcompanieswiththesameinformationandaforumtoaskquestions.
Recommendation22:ConductquarterlycurrentSmallBusinessstatusmeetingwithSmallBusinesseswithprimeorsubcontractsatNGA.
BenefitstoNGA:ProvidesaforumtofocusonSmallBusinesscapabilities;AffordsanopportunitytotrainGovernmentworkforceandprovideprofessionalcertificationunits.
BenefitstoSmallBusinesses:Providesgreatervisibility,access,andinteractiontogovernmentandLargeBusinesspartners.
Recommendation24:HostindividualSmallBusinesssocio-economiccategoryeventsinpartnershipwithUSGIF.
• EmergingSmallBusiness• SmallBusiness• SmallDisadvantagedBusiness
o ServiceDisabledVeteransOwnedSmallBusiness(SDVOSB)andVeteranOwnedSmallBusiness(VOSB)
o HistoricallyUnderutilizedSmallBusiness(HUBZone)o EconomicallyDisadvantagedOwnedWomanSmallBusiness(EDWOSB)and
WomanOwnedSmallBusiness(WOSB)o 8aDisadvantagedSmallBusiness(8a)o HistoricallyBlackColleges(HBCs)
BenefitstoNGA:ProvidesNGAanopportunitytounderstandeachoftheindividualsocio-economiccategoryoptions.BenefitstoSmallBusinesses:ProvidesmoreopportunitytorepresentandfocusoneachSmallBusinesscategory.