Pricing to Win and Deliver June 19, 2012

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1 Network for Enabling Small Business Teaming (NEST) Workshop 2 WINNING THE OPPORTUNITY Pricing to Win and Deliver Susan Pernia, MBA/PMP Consultant, Foundation for Enterprise Development spernia@fed.org The information provided in these training materials is not all inclusive and companies should consult with their legal, contracts and financial staff regarding all teaming decisions 1

2 Price to Win Introduction What: A strategic approach to determining what bid price would provide the highest probability of winning the contract Why: Increase the competitiveness of your proposal How: A structured process integrating top-down and bottoms-up technical and management analysis of the opportunity Who: Any combination of members of the Capture/Business Development/Proposal Teams usually cross-disciplinary When: Beginning BEFORE the final solicitation and THROUGH the proposal development process end of contract period of performance Then it s time to deliver what you priced Price to Win Price to Deliver RFI RFP Proposal Contract Start End Federal Procurement Life Cycle 2

3 Price to Win Can Be A Key Factor In Winning Proposals Proposals Which Are Priced To Win Must Be Both Compliant and Competitive Compliant fully addresses RFP Requirements Coherent enables easy understanding by the government for allocating high bid evaluations Credible presents technical and management approaches based on realistic solution, current capabilities, and past performance Compelling defines unique and best-in-class solutions and services with strong value propositions Competitive meets or exceeds procurement requirements with lowest price and/or best value 3

4 Price to Win Activities Throughout the Procurement Process RFI RFP Proposal Contract Start Contract End Federal Procurement Life Cycle Gather Internal Cost Performance Data Assess Potential Competitors Determine Govt Funding Perform Competitive Analysis Develop Bottoms Up Cost Model with Risk Analysis Determine Topdown PTW Range And Tradeoffs Decide PTW Negotiate Final Procurement Requirements and Final Price Update Risk Assessment and Program Plan per negotiated Contract Track actual costs against bid price Perform cost variance analysis and initiate corrective actions Deliver compliant performance in budget Gather historical cost performance data for future bids 4

5 Leveraging Diverse and Complex Information in Developing Price to Win Historical Contract/ Funding Data Anticipated Pricing Target Procurement Terms and Conditions Competitor Capability/ Cost Data RFP Pricing Terms Competitive Analysis Compliance Matrix Price to Win Bottoms Up Cost Estimates Cost Model for Sensitivity Analysis 5

6 Price to Win Assess Knowledge of Customer Sources of Customer Information Individual Government Representatives Agency Websites Historical Federal Contracts Etc. Types of Customer Information Government Roles and Responsibilities Documented Requirements in Previous Contracts Undocumented Requirements and Hot Buttons Contract Performance Importance for Price to Win Customer expectations regarding price Financial Risk Concerns Etc. 6

7 Price to Win Assess Knowledge of Competitors Sources of Competitor Information Prior Contract Information (In public domain) Customer Websites Customer Brochures/ Tradeshow Presentations Etc. Types of Competitor Information Corporate Capabilities Key Personnel Descriptions of Services Specifications of Products Price Schedules/Labor Rates/Indirect Rates Importance for Price to Win Comparison of past financial and technical performance Comparison of potential bids for solicitation Input for Bid/No Bid and Final Price 7

8 Potential Ethical Issues Related to Customer/Competitor Information Issue Negative Impact Mitigation Acquiring proprietary Government Information Acquiring proprietary Competitor Information Prior employees Prior contracts Prior NDAs and Teaming Agreements Prior Subcontractors Unfair advantage that could lead to protest or exclusion from bidding Unfair advantage that could lead to protest or exclusion from bidding Ruined reputation for future bids and for future teaming opportunities Company leadership and corporate policies prohibiting this Company leadership and corporate policies prohibiting unethical behavior Proposing Prices/Costs that are not accurate Financial loss for company Government record of poor financial performance Rigorous financial reviews by senior management 8

9 Examples of When Price to Win May be Appropriate or Not Factors When Price to Win Is Likely a Viable Bid Strategy Adequate lead time to gather and assess information on competitors and customer There are available resources who know how to collect required data, evaluate it, and apply it to PTW decision-making There are known competitors who have consistently out-bid you through Best Value or Lowest Cost Gray Area Factors When Price to Win May Not Be a Viable Bid Strategy No lead time barely enough time to develop minimally compliant bid using bottoms up estimation Qualified resources not available or accessible, and other resources may not be able to provide useful PTW recommendations There are known competitors who you have consistently out-bid to win work for specific solutions 9

10 Key Terms and Conditions Related to Price To Win and Deliver Term Definition *FAR source Pricing Best Value Tradeoff process Design to Cost Lowest Price Technically Acceptable Cost Realism Establishing a reasonable amount or amounts to be paid for supplies or services. Expected outcome of an acquisition that, in the Government s estimation, provides the greatest overall benefit in response to the requirement * When it may be in the best interest of the Government to consider award to other than the lowest priced offeror or other than the highest technically rated offeror. A concept that establishes cost elements as management goals to achieve best balance between life-cycle cost, acceptable performance, schedule* A source selection process which is appropriate when best value is expected to result from selection of the technically acceptable proposal with the lowest evaluated price. Process of independently reviewing elements of proposed cost estimate to determine if these are realistic for work to be performed; reflect a clear understanding of requirements; and consistent with unique methods of performance and materials in technical proposal 10

11 Key Terms and Conditions Related to Price To Win and Deliver Term Direct Cost Indirect Cost General and Administrative Expense (G&A) Overhead Cost Unallowable cost Allowable Costs Definition *FAR Any cost identified specifically with a particular final cost objective; not limited to items incorporated in the end product as material or labor. * Any cost not directly identified with a single final cost objective, but identified with 2+ final cost objectives or 1 intermediate cost objective. Any management, financial, and other expense which is incurred by or allocated to a business unit for the general management and administration of the business unit as a whole. Expense incurred for, or that only benefits, an identifiable unit or activity of the contractor internal organization Any cost under provisions of any pertinent law, regulation, or contract, cannot be included in prices, cost-reimbursements, or settlements Recorded costs that, at the time of the request for reimbursement, the Contractor has paid by cash, check, or other form of actual payment for items or services purchased directly for the contract 11

12 Elements of Cost And Pricing Factors COST ELEMENT PRICING FACTORS PRICING FLEXIBILITY Prime Contractor Direct Labor Cost (Hours x Rates) Subcontract Total Direct Labor Cost (Hours x Rates) Prime Overhead Cost (Per Rates) Labor categories map to SOW and address skill requirements Rates are set for the Rates may be adjustable per staff/ salary mix for each labor category and lower hours for more senior staff Rates hard to adjust in short Prime Service Center Cost year and must be term; changes require long (Per Rates) auditable term financial and Prime Total G&A Cost (Per Rates) accounting planning Prime Non-Labor Costs GFE vs CFE Adjustability specific to each (Equipment, Training, Travel, etc) Travel often set procurement Subcontractor Non-Labor Costs/Fee Specified by Prime Negotiated by Prime/Subs Prime Facilities Capital Costs As Required If required, corporate sets Prime Fee (Per Rates) Per Contract Type Ranges from Low to High Total Bid Price 12

13 Pricing Strategies Need to Align with Procurement Requirements Range of Procurement Requirements General and Broad Requirements Broad Set of Solutions Are Possible, Higher Risk, and Under Development PRICE MAY NOT BE THE MAJOR VARIABLE Precise and Unambiguous Requirements Narrow Set of Solutions Are Proven, Low Risk and Available PRICE IS LIKELY A MAJOR VARIABLE 13

14 Pricing When the Government Procurement Presents Definitive Requirements Range of Procurement Requirements High Definition EXAMPLES OF ALTERNATIVE BIDDING STRATEGIES Undercut price intentionally to gain new contract Offer price reductions under specific proposed terms, e.g. lower unit cost with higher volume of product/service Emphasize lower risk and/or higher reliability of product/service Offer fee reduction to demonstrate form of cost sharing partnership Precise and Unambiguous Requirements Narrow Set of Solutions Are Proven, Low Risk and Widely Available PRICE IS LIKELY A MAJOR VARIABLE 14

15 Pricing When the Government Procurement Presents Broad/High Level Requirements Less Definition - Range of Procurement Requirements Imprecise and Ambiguous Requirements Broad Set of Solutions Possible, Higher Risk, and Under Development PRICE IS NOT THE MAJOR VARIABLE EXAMPLES OF ALTERNATIVE BIDDING STRATEGIES 1. Bid lowest price for minimally compliant solution if cost critical 2. Bid lowest risk compliant solution if risk most critical 3. Develop highest functionality and performance compliant solution if level of capability most important 4. Present trade-offs of cost, risk and performance to enable Government to adjust chosen solution 15

16 Price to Win Discussion Example NASA Procurement for IT Support EXAMPLE OF A RECENT SMALL BUSINESS PROCUREMENT NASA- NNJ R: An 8A set-aside for IT services/cost Plus Fixed Fee & FFP Section A - Solicitation/Contract Form Section B Supplies Or Services And Prices/Costs Section C Description/ Specification/ Work Statement Section D Packaging And Marking Section E Inspection And Acceptance Section G Contract Administration Data Section H Special Contract Requirements Section I Contract Clauses Section J List Of Attachments Section K - Representations, Certifications, And Other Statements Section L Instructions, Conditions And Notices To Offerors Section M Evaluation Factors For Award 16

17 NASA Solicitation Example: The Work to be Priced and Delivered Statement of Work Managerial, administrative, and technical work needed to provide the functions, products, and services in support of NASA s human spaceflight programs. The objectives of this contract are to acquire skilled support involving: Requirements specification and analysis Data and configuration management Evaluations, simulations and testing and verification of computer software applications and databases Information Technology (IT) resource management and planning Facility management. 17

18 NASA Solicitation Example: Required Structure of Proposal for Evaluation L Performance Price Tradeoff (PPT) Proposal Instructions. This procurement will be conducted using a combination of technically acceptable baseline requirements (Technically Acceptable/Technically Unacceptable), past performance, and cost/price. The Government seeks to select an offeror whose proposal represents the best value after evaluation (See provision M.4.3, Performance Price Tradeoff (PPT) for evaluation procedures). The baseline requirements are considered as basic government needs in determining technical acceptability. Technical acceptability, past performance, and cost/price are discussed in detail below (in Section L. 18

19 NASA Solicitation Example: How Proposal Will be Evaluated will be evaluated for a demonstration of the Offeror s competence and capability to successfully complete the requirements specified in the Statement of Work. Generally, the proposal shall: Demonstrate understanding of overall and specific requirements Convey the company s capabilities for transforming understanding into accomplishment Provide in detail, the plans and methods for so doing; and Provide the cost/price associated with so doing. All unacceptable proposals will be eliminated from further evaluation. The Government will award to the Offeror whose proposal offers the best overall value to the Government that meets all solicitation requirements..a combination of technical acceptability and a tradeoff between past performance and cost. Compliance Coherent Credible Compelling Compliance Competitive 19

20 NASA Solicitation Example: What the Bid Price Must Include Cost Proposal requires both a Cost Narrative in MS Word and Templates in Excel format Cost Element CY 1 CY 2 Direct Labor (DL): Prime Total Hours (Straight-Time and Overtime Major Subcontract Total Direct Labor Hours Total Direct Labor Hours and Cost Prime Overhead (OH) & Service Centers (SC): 1. Cost and Rate Total OH & SC Cost Major Subcontractor Total Cost (list) Total Subcontractor Cost Prime Non-Labor Resources (NLR): Material, Equipment, HW, Training,, Travel, etc Total Non-Labor Cost Prime Total G&A Cost (Base and Rate) Prime Facilities Capital Cost of Money TOTAL ESTIMATED COST Fee (Base and Rate) Cost TOTAL ESTIMATED COST & FEE 20

21 Bidding Strategies/Pricing Decisions Based on Level of Procurement Certainty Low Certainty/Minimally Definitive -- Range of Procurement Requirements -- High Certainty/ Fully Definitive When Undefined and Uncertain There is More Proposal Maneuvering Room but Harder to Determine Win Strategy Solicitation Content Statement of Work Contract Clauses Proposal Instructions Evaluation Criteria for Contract Award Etc. When Defined and Certain There is Less Proposal Maneuvering Room but Easier to Determine Win Strategy 21

22 Bidding Strategies For Set Cost/Price and Broader Requirements Low Specificity -- Range of Procurement Factors High Specificity Less Definitive Requirements Bidding Strategy: Design to Cost For a firmly set cost/budget: Alternative designs that satisfy the solicitation requirements? How do these alternative designs compare in terms of, e.g.: Functionality/Performance Service Level/Risk/Quality Definition of Design to Cost - A concept that establishes cost elements as management goals to achieve the best balance between life-cycle cost, acceptable performance, and schedule* Set Cost/Price 22

23 Bidding Strategies For Flexible Cost/Price and Broader Requirements Broad Requirements -- Range of Procurement Factors Numerous Possible Solution Flexible Cost/Price Bidding Strategy: Best Value Determine the optimal complement of solution and price across compliant range of bids Prove to government proposed solution not only is compliant, but provides optimal capabilities at most competitive price and with the most acceptable risk Substantiate the proposed bid reflects reasonable cost and can be credibly implemented upon award Best Value Continuum (FAR)...the relative importance of cost or price may vary. For example, in acquisitions where the requirement is clearly definable and the risk of unsuccessful contract performance is minimal, cost or price may play a dominant role in source selection. The less definitive the requirement, the more development work required, or the greater the performance risk, the more technical or past performance considerations may play a dominant role in selection. 23

24 Bidding Process Without Price to Win Compliant and Compelling Program Planning Federal Solicitation Assess Procurement Requirements SOW Maintain Company Historical Cost Data Schedule Develop Technical Approach/ WBS Define Tasks, Duration and Timeframe Allocate Resources to WBS/Schedule Do Bottoms Up Cost Estimate of Resources and Risk Prepare Technical/ Management Proposal Prepare Cost (Price) Proposal Submitted Proposal 24

25 Price to Win Bottoms Up Cost Estimate Prior Contract Technical and Cost Performance Identify Relevant Historical Costs Create a WBS/Cost Model Per Solicitation Excel file of WBS & Schedule Format Current Solicitation Expert Judgment Allocate Resources Needed to Perform Work Estimate Cost of Resources to Perform Work Adjust Cost Estimate Per Risk/Reviews Filled-in cells of Staffing/Non Labor Application of Cost to Labor and Non-Labor Resources Total Cost Estimate for Submitted Proposal 25

26 Bidding with Price to Win Competitive Program Planning Federal Solicitation Maintain Historical Cost Data Assess Procurement Requirements Assess Knowledge of Customer Assess Competitor Performance Develop Technical Approach/WBS Define Tasks, Duration and Timeframe Allocate Resources to WBS/Schedule Do Bottoms Up Cost Estimate of Resources and Risk Perform Pricing Analysis Prepare Technical/ Management Proposal Prepare Cost (Price) Proposal Decide and Approve Competitive Price Submitted Proposal 26

27 Illustration of Price to Win Internal Capability/Cost Assessment COST Compliant So olution TECHNICAL, FUNCTIONAL, AND PERFORMANCE OF YOUR CAPABILITY (IES) 27

28 Illustration of Price to Win Low Cost/Minimal Compliance Bid COST $ Scenario 1 Requirements Highly Specified TECHNICAL, FUNCTIONAL, AND PERFORMANCE OF YOUR CAPABILITY (IES) Compliant Solution Solutions Are Known and Proven Low Cost/ Minimal Compliance is Indicated in Procurement 28

29 Illustration of Price to Win Best Value Bid Scenario 2 COST TECHNICAL, FUNCTIONAL, AND PERFORMANCE OF YOUR CAPABILITY (IES) Compliant Solution Broad Requirements Broad Range of Solutions Best Value is Requested in Procurement 29

30 Illustration of Price to Win Competitor Comparative Analysis COST Compliant Solution TECHNICAL, FUNCTIONA, AND PERFORMANCE OF YOUR CAPABILITY (IES) 30

31 Price to Win Combines Top-Down and Bottoms Up Historical Government Contract Data Competitor Performance Data Specific Government Opportunity Company Historical Performance What Price Has the Government Paid in the Past for Similar Programs What Price Do You Think the Competitors Will Bid Against What Solution What You Think Government Plans To Spend and How Will They Evaluate Price Actual Costs for Performing for Similar Work and Basis of Estimates for Proposed Work TOP DOWN What is the Price Required to Win Trade-Off of Solution, Price, and Risk What is the Price Required to Deliver BOTTOMS UP Final Bid Price 31

32 NASA Solicitation Example: Potential Strategies for Reducing Cost/Price Direct Labor Cross-trained staff to perform multiple tasks in parallel Junior staff leveraged by senior staff Re-use of existing data and documentation Established engineering and program management (PM) processes Highly automated business processes Established Engineering and PM support tools Non-Labor Minimally compliant equipment, materials, etc. Rates Bid of constant rates (no new OH or G&A) over Period of Performance Fee Reduced Fee from year to year, or no fee for first year, etc. 32

33 Pricing to Win as an Investment Still Requires Cost Realism Bids may be low-balled to under cut competitors Overly low cost may backfire if the Government doesn t believe you Government develops cost models to generate probable pricing ranges Contracting Officers may Obtain the type and quantity of data necessary to establish a fair and reasonable price techniques such as price analysis, cost analysis, and/or cost realism analysis to establish a fair and reasonable price. FAR Subpart 15.4 Contract Pricing reflect the Government s best estimate of the cost of any contract that is most likely to result from the offeror s proposal. The probable cost shall be used for purposes of evaluation to determine the best value. FAR Subpart 15.4 Contract Pricing Government can compare your estimated cost to probable cost Cost realism may be considered by the source selection authority in evaluating proposal performance or schedule risk- FAR Instructions to Offerors Competitive Acquisition 33

34 Price to Win With Small Business Teams Suggested Steps Share background information on customer, current capabilities and competitors post-nda Read and evaluate the entire procurement to gain consensus on meaning of all requirements submit questions on unclear terms Allocate procurement requirements to team members Review team member basis of estimates for initial pricing Develop and integrate initial cost estimates for total pricing Review initial total cost estimate for realism and risk Conduct comparative analysis of competitor capabilities and cost Identify likely Price to Win and review for team acceptability Establish Teaming Agreements incorporating PTW elements 34

35 After the Win NASA Example Contractor Financial Management Reporting Post-Award Reporting Requirements Compliant with the most current version of NPR , applicable to: Phase-in Plan Organizational Conflict of Interest Avoidance Plan Fiscal year (FY) operating plan and planning, programming, budgeting, and execution (PPBE) NF533M Cost Reporting with Supplemental Customer Cost Reporting Total Compensation Plan Wage/Salary and Fringe Benefit Data Format of Report Fixed Price Plan/Invoices Completion Work Budget Completion Work Actuals Indirect Plan and Actuals 35

36 After the Win Managing the Cost of Program Implementation Approved Contract Award Establish Cost Baseline/Budget Assign Work to Resources Track Work and Resources Used Planned Cost Expected Cost Actual Costs Positive Cost Performance Perform Cost Analysis Cost Variance Decide Cost Corrections Estimate to Complete 36

37 Price to Win Consulting Services Businesses often hire outside consultants to perform Price to Win PTW Consulting Services may include: Defining your own capabilities for purposes of competitive analysis Facilitating development of Win Strategies Assessing your own labor and non-labor costs and rates Collecting and assessing competitors technical and cost performance data Developing competitive analyses related to specific procurement opportunity Generating cost models for pricing the bid Supporting development of Cost Proposals USE CAUTION WHEN OUTSOURCING PRICE TO WIN Develop detailed Statement of Work and Acceptance Criteria for PTW Perform Due Diligence on PTW consultants to verify integrity and results 37

38 Additional Resources Federal Acquisition Regulations: PTW-related terms and conditions SBA Contracting: Articles and Blogs on Pricing Strategies Example -- DoD Contracts Opportunities and bidding guidance DoD Freedom of Information Website Text Books Examples, NOT recommendations Pricing Strategies for Small Businesses by Andrew D. Gregson Hope Is Not A Winning Strategy... But Price To Win (PTW) Is!:by Anthony C. Constable Competitive Strategy: Techniques for Analyzing Industries and Competitors by Michael Porter 38

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