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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
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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
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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
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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.
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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.
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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.
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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.
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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 .
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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:
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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
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A Report by the U.S. Merit Systems Protection Board
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.
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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,
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A Report by the U.S. Merit Systems Protection Board
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
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Contracting Officer Representatives
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.
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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
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Contracting Officer Representatives
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
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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).
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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.
Contracting and the Roe of CORs
11 AR, sc 1.102 ().
12 pulc Law 108-136.
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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.
Contracting and the Roe of CORs
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.
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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
Contracting and the Roe of CORs
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.
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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
Contracting and the Roe of CORs
20 AR, sc 1.102-4 ().
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Contracting Officer Representatives
Contracting and the Roe of CORs
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.
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Contracting and the Roe of CORs
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.
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Contracting Officer Representatives
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.
Contracting and the Roe of CORs
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.
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Contracting and the Roe of CORs
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.
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Contracting Officer Representatives
Contracting and the Roe of CORs
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.
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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
Contracting and the Roe of CORs
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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.
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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.
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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.
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CORs and the Contracts on Which They Work
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
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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.
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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
CORs and the Contracts on Which They Work
23 d rc rucur, aal c cul llar r la cml wrk, wc ca jarz m accmlm.
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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
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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).
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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.
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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.
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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.
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0 Contracting Officer Representatives
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
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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
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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.
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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
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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.
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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.
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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.
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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.
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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
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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.
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Contracting Officer Representatives
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%
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mu av rmal rl a aur r a wrk.37 t rcl
arcularl mra r CoR cau r rl ur a
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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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A Report by the U.S. Merit Systems Protection Board
Interactions with other Federa empoyeesinvoved in contracting work
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