Optimizing the U.S. Federal Government s Supply Chain(s)

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1 Optimizing the U.S. Federal Government s Supply Chain(s) U.S. Federal Government agencies, prime contractors, and subcontractors must all work together to reduce costs and improve performance results. The failure of our U.S. Federal Government supply chain(s) is not a viable option! Like it or not, we live in a world of outsourcing. The practice of outsourcing work is growing worldwide in both the public and private sectors. For years, companies and government organizations have realized it is often more cost-effective and efficient to focus their critical resources (people, time, and money) on their respective core competencies, and outsource, or subcontract, their non-core functions to other companies. Clearly, some companies and government agencies have gone too far and outsourced key functions, which are indeed mission critical, and/or not realized the cost savings or efficiencies they had anticipated. However, in most cases the facts have proven that organizations have made reasonable business outsourcing decisions. Yet the decision to buy versus make a product, service, system, and/or solution is not sufficient; an organization must learn how to appropriately master their supply chain. Optimizing the U.S. Government s supply chain(s) is no easy task. However, the U.S. Government s supply chain(s) is vital to U.S. taxpayers, and mission essential to ensure government agencies receive the quality products and services they require at a fair and reasonable price. The U.S. Government cannot meet the growing needs of its citizens without a strong, viable, and ethical supplier base. This article focuses on understanding the U.S. Government s current supply chain(s): what it consists of, how it is structured, and what are its challenges. Plus, this article offers several recommendations for optimizing the U.S. Government s supply chain(s) for the benefit of U.S. taxpayers, government agencies, and industry. 1

2 Understanding the U.S. Federal Government s Supply Chain(s) U.S. Government spending has grown significantly since 2000 (see Figure 1.). In fiscal year 2008, the U.S. Government spent more than $531 billion in acquiring a wide range of products, professional services, and integrated solutions from hundreds of thousands of government contractors and subcontractors. The U.S. Government spending spree was conducted by more than sixty government departments, agencies, and commissions. Over 60% of the $531 billion in FY 2008 was spent acquiring a diverse number of professional services from contractors and subcontractors, both large and small businesses. The U.S. Government agencies have increasingly purchased professional services including: information technology (IT); systems engineering; logistics/sustainment management; program/project management; strategic sourcing; acquisition support services; accounting; and financial management services, just to mention a few. Figure 1: Government Contract Spending Grows $550 $500 $450 $400 $350 $300 $250 $200 $150 $100 $50 $0 Total amount spent on federal contracts (billions of dollars ) Source: Federal Federal Procurement Data Data Systems, 2008., The biggest government buyers of products, services, systems, and integrated solutions are consistently the U.S. Departments of Defense, Homeland Security, Energy, and the National Aeronautics and Space Administration, which collectively spend about 90% of the U.S. Government s annual acquisition budget. Typically, the U.S. Government awards about 80% of its acquisition budget to large businesses, via 7.7 million government contracts in 2008 (see Figure 2.). The U.S. Federal Government s supply chain varies by department or agency and by a number of very critical factors, including: Nature of the product or service Availability of the product or service Urgency of the requirements Maturity of the technology required Geographic location(s) required Quantity of products and/or services Overall complexity Life-cycle costs, and Other key factors including the government s budget and ability to accurately state its requirements to industry. Figure 2: Government Contracts Spiral Upward Total number of federal contracts (in millions ) Source: Source: Federal Federal Procurement Procurement Data Data Systems, Systems 2008.,

3 Simply said, the U.S. Government s supply chain typically consists of the following key elements, illustrated in Figure 3. U.S. Government: Critical Supply Chain Challenges Figure 3. U.S. Federal Government s Supply-Chain Figure 3: U.S. Federal Government s Supply Chain Government Agency, Customer or End-User 1. The U.S. Government is Not a Business It is important to remember the U.S. Government is not a business. The U.S. Government operates to support the security, political, and socio-economic needs of its citizens. Toward this end, the U.S. Government acquires billions of dollars of products and services from industry, and does so in a manner which reflects the security, political, and socio-economic needs of the nation. Thus, the government does not always purchase products and services in the most cost-effective and efficient manner, because serving the broad needs of its citizens comes before getting the cheapest items. 2. The Mission of the U.S. Government is Serious and Complex The mission of the U.S. Government is both serious and complex. Meeting the public s need for a strong economy, national defense, homeland security, energy, agriculture, commerce, transportation, labor, healthcare, system of justice, and much more are indeed serious matters. Likewise, the broad and growing needs of the U.S. public as a result of evolving global economic conditions, threats of terrorism, ever-changing technologies, potential natural disasters, and much more all impact our society, and make the mission of the U.S. Government highly complex. Customer & Program Requirements Product and/or Services Needs Government Agency Program Office Customer & Program Requirements Government Agency Financial Office Funding Government Agency Contracting Office Contract Prime Contractor Subcontract(s) Subcontractor(s) 1 st Tier Contract & Program Status 3. The Federal Acquisition Process is Overly Regulated, Expensive, and Slow The Federal Acquisition Regulation (FAR) system, which was implemented in 1984 to provide a fair and consistent purchasing process throughout the government, is overly burdensome on government agencies, government contractors, and subcontractors. However, there are a few U.S. Government agencies that are not bound by the rules and requirements Subcontract(s) Subcontractor(s) 2 nd Tier or more 3

4 contained in the 1,000 plus pages of the FAR, including the U.S. Postal Service and the Federal Aviation Administration. Typically, all of the federal government agencies bound by the FAR have developed and continually update their own FAR supplements, which may add hundreds or thousands of pages of additional requirements and/or guidelines to further tailor or customize their respective supply chain. Thus, government contractors and subcontractors must read, understand, and fully comply with thousands of pages of rules, regulations, policies, standards, and specifications, which in many cases carry the full force and effect of public law with both significant individual and organizational criminal and/or civil penalties for violations of non-compliance. As a direct result of the overly regulated federal acquisition process, it takes government agencies far too long, and it costs far too much, to acquire most products and services. While the U.S. Government has enacted policies and requirements to streamline its acquisition process and use more commercial contracting best practices, most government agencies have not fully embraced or implemented these changes. Thus, most U.S. Government agencies still struggle to acquire needed products and services in a timely and cost-effective manner because of their tendency to over-specify their requirements, which often make their products and services unique to government agencies even when it is not truly necessary or appropriate. For example, the Government Accountability Office (GAO) recently reported that collectively the U.S. Government agencies had created more than 18,000 pages of unique requirements for commercially available off-the-shelf information technology (IT) services, which resulted in the government agencies paying far more for the same services as commercial organizations. 4. Federal Government Contractors are Increasing their Subcontracting In an all out effort to improve performance results, reduce costs, and transfer or mitigate risk, government contractors, who, by-inlarge, tend to be a risk adverse group, are increasing their subcontracting to both large and small businesses. Government prime contractors want to create strong, cost-effective, efficient, and reliable supply chains. However, the large businesses often struggle to meet the U.S. Government s small business subcontracting goals with the numerous specific categories stated in FAR Part 19, because of the difficulty of finding a sufficient number of small businesses with the skills, capabilities, financial support, and positive past performance record to partner with on an important government contract. Clearly, as the level of subcontracting increases, the more vital is the prime contractor s ability to manage their supply chain to ensure on-time delivery of quality products and/ or services to their government customers. Likewise, government prime contractors are required to flow-down more than fifty mandatory FAR clauses and detailed contract terms and conditions to all of their subcontractors. Plus, each agency s FAR supplement contains numerous mandatory flow-down contract clauses. Each and every one of these detailed mandatory flow-down contract clauses has a value, cost, and risk associated with them. While ultimately the government s prime contractor is held accountable for their subcontractor s performance, the use of the excessive mandatory flow clauses adds significant costs at every level of the supply chain. 5. The U.S. Federal Acquisition Workforce is Understaffed and Needs Training Nearly every Government Accountability Office (GAO) Report of the U.S. Federal acquisition workforce, and similar studies conducted by the Professional Services Council (PSC) and Grant-Thorton, individual agency studies, or reports from the U.S. Office of Federal Procurement Policy (OFPP), have all stated the U.S. Federal acquisition workforce is understaffed at the vital mid-level ranks and is in need of more and better training. The government employee career fields which are typically cited as critical to the federal acquisition process include: contract management, program/project management, cost/price analysis, systems engineering, logistics management, accounting/auditing, and property management. Over the past decade, many of the best and brightest people serving the government agencies in these vital acquisition-related roles have either transferred to industry, retired, or transitioned to another career field. The most important element of any supply chain or organization is the people and their collective talents/skills. Today, the U.S. Federal acquisition workforce is suffering from a shortage of talent and the need for both more and better acquisition-related formal education, cross-functional training, and on-the-job training/mentoring. Clearly, the current U.S. Government supply chain(s) is vital to the operation of government and critical to its ability to support the needs of our nation. The following recommendations are provided to stimulate thinking and actions to make further improvements in the federal government s supply chain, as described in this article, for the benefit of the U.S. taxpayers, government agencies, government contractors, and subcontractors. 4

5 Recommendations for Improving the U.S. Government s Supply Chain 1. Simplify and Streamline the Federal Acquisition Process In an effort to reduce cycle-time, reduce costs, and improve customer satisfaction, the following are a few suggested actions to simplify and streamline the Federal acquisition process: Rewrite the Federal Acquisition Regulation (FAR). Create a new streamlined e-far, web-based, with process diagrams, tools, templates, forms, best practices, and all applicable laws. Implement a standardized Governmentwide e-procurement software application, required for use by all federal government agencies. This would create a consistent paperless enterprise-wide e-procurement system for all federal government agencies. Mandate the use of commercial item acquisition to the fullest extent possible. Eliminate the federal bid protest process. Reduce the mandatory FAR flow-down clauses to subcontractors. Mandate the use of Alternative Dispute Resolution (ADR) techniques to resolve claims government-wide. Implement government-wide strategic sourcing for all commodities and commercial off-the-shelf products and services via the General Services Administration (GSA). 2. Implement Performance-Based Supply Chain Management Increasingly, organizations in both the public and private sector are forming strategic alliances or partnerships between or with a smaller number of suppliers, distributors, resellers, or a combination of all. Government organizations are seeking to leverage their relationships with government contractors to achieve greater discounts, reduced inventories, reduced cycle-times, and enhanced capabilities. Today, more government agencies are providing or sharing information with their business partners through extended enterprise databases. Government organizations are starting to share more forecast or demand information with their selected government contractors through secure web portals in order to reduce expenses and maximize performance results. Information is power, and enterprise-wide software applications, which have the capability to link organizations government-wide to government contractors and in turn link them to their respective subcontractors, can form powerful extended supply chains. To create a true performance-based supply chain, government organizations must select prime contractors based in part on past-performance. Likewise, government prime contractors must select their respective subcontractor(s) on a performance basis. Once a supply chain is created via the award of contracts and subcontracts, then with the intelligent application of appropriate performance standards, measures, metrics, and financial incentives, superior results can be achieved. However, it is important to note that without on-going and effective project management, contract management, and subcontract administration by all of the supply chain partners involved, the desired outcomes will not be realized. 3. Enhance the Federal Acquisition Workforce The U.S. Government agencies must enhance their investment in the acquisition workforce by improving their recruiting, hiring, training, and retention of key employees. Currently, federal agencies have significant shortages of mid-level, experienced acquisition professionals, especially in the following functional areas: contract management, program/project management, systems engineering, cost/price analysis, and logistics management. The Office of Personnel Management (OPM) must work with the government agencies to improve the acquisition work environment, provide effective intern-professional development programs, provide training/education with industry programs, enhance mentor/coaching activities government-wide, and improve acquisition training. In addition to all of the aforementioned positive actions to improve the culture, work environment, and employee development for acquisition professionals, it is also important to make salaries more competitive with the private sector. Likewise, government agencies should implement a pay-for-performance system for all acquisition professionals. Without the needed talents, which have been allowed to erode for over a decade, the government agencies will never realize the cost-savings, cycle-time reductions, and improved customer satisfaction in their respective supply chain. Remember, it is always the people and their talents that are essential to achieve success for any organization or team! 4. Create an Effective Balance of Government Surveillance and Oversight There is no question the government agencies have the right and responsibility as a prudent buyer of products and services to conduct appropriate surveillance and oversight of their selected contractors, especially on complex, critical, high risk contracts. However, U.S. Government agencies often overwhelm government contractors and their respective subcontractors with countless requests for information/data, certifications, reviews, audits, and investigations. The net effect is often a more risk adverse industry, which lives in fear of government audits, reviews, and investigations, which cause significant amounts of money to satisfy government auditor demands, and which do not necessarily add real-value to the products or services being acquired. 5

6 Contact» Gregory A. Garrett Managing Director About Navigant Consulting Navigant Consulting, Inc. (NYSE:NCI) is a specialized independent consulting firm providing dispute, financial, regulatory and operational advisory services to government agencies, legal counsel and large companies facing the challenges of uncertainty, risk, distress and significant change. The Company focuses on industries undergoing substantial regulatory or structural change including financial services, insurance, healthcare, energy and on the issues driving these transformations. We have offices in over 43 cities in the United States, Canada, Europe and Asia. The current perception is that too many government contractors have been performing poorly as a result of reduced government surveillance and oversight during the past eight years. Thus, it is widely expected that there will be a major increase in government reviews, audits, and investigations during the next administration. Yet, what is really needed is an effective balance. Said differently, federal agencies should select the best qualified contractors based upon their respective past performance, pricing, technical solution, financial capabilities, and management expertise, then appropriately motivate, measure, and verify their performance in an efficient and cost-effective manner. The government should not conduct excessive audits, reviews, and investigations that drive-up costs without adding value to the supply chain. Summary We have discussed the key components, structure, and major challenges currently facing the U.S. Government s supply chain(s). It is vital to all U.S. taxpayers, to all government contractors and subcontractors, and to all federal government agencies that the respective supply chains created by each federal government agency operate in compliance with all appropriate U.S. laws, regulations, and policies. Likewise, it is vital to all of the parties involved in the government supply chain that the U.S. Government agencies seek and implement action plans, such as those presented in this article, to promote continuous improvement of their people, processes, and performance in order to use taxpayer dollars as wisely as possible Navigant Consulting, Inc. All rights reserved. Navigant Consulting is not a certified public accounting firm and does not provide audit, attest, or public accounting services. NAVIGANT is a service mark of Navigant International, Inc. Navigant Consulting, Inc. (NCI) is not affiliated, associated, or in any way connected with Navigant International, Inc., and NCI s use of NAVIGANT is made under license from Navigant International, Inc. 6

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