FEDERAL ACQUISITION: CONCEPTS AND
MANAGEMENT
PUAF 689A
Fall 2012
Wednesday 4:15 - 6:45 PM
Room: TBD
Van Munching Hall
William Lucyshyn
2211B Van Munching Hall
Office Hours: Wed 2:30-4 PM
301.405.4794 (By Appt.)
lucyshyn@umd.edu
Course Description
This course provides an overview of acquisition as one of the basic functions of government.
Specific focus will be on the scope of acquisition, including organizational structures,
regulations, strategies and issues of acquisition processes and management, from the
development of an initial capability or need, through design, development, production, fielding,
sustainment, and disposal. Introduces the principles and concepts that underlie successful
acquisition management – from major systems development and production, through buying
services and common commodities; and a special consideration of state and local levels
Course Requirements
You should prepare for class each week by reading the assigned material and cases. For the
cases, be prepared to lead/participate in the class discussion, on: 1) the issues raised, 2) the
relevant theory and practice (from readings, experience, etc.), and 3) your recommended
actions and rationale. (You are encouraged to discuss these items with one or more of your
classmates prior to the class discussion of the case.)
The three short (four pages max.) “issue papers” will be based on a topical acquisition issue
(e.g. competition; firm-fixed price contracting; use of Lowest Price Technically Acceptable
source selection criteria; conflicts of interest; etc.) to be announced at least 2 weeks in advance.
They should be clearly written, well thought out and with appropriate facts to support your
argument. They should be well researched (use endnotes), double spaced and printed out.
Writing a good short paper is often harder to do than a long paper, and much more likely to be
read by senior policy makers. If the paper is late, there will be a reduction in the grade.
For the second and third issue papers, you will be given a topic of current interest and one
relevant to the course content. For the first paper, the topic will be selected by the students. You
should develop your issue paper by first clearly stating “the issue,” then describing the
background of the issue or subject upon which you intend to focus. Subsequently, you should
develop a recommended course of action and defend it. (There is a reading on ELMS
Blackboard that may be helpful with regard to writing an issue paper.)
During class #15 each student will be required to give a brief oral presentation of their first
paper (less than 5 minutes each). This should focus on the issue addressed and the
recommended approach.
Students are encouraged to discuss any issues or questions related to this course with me. My
office hours are Wednesday, 2:30 - 4:00 p.m., please make an appt. by phone or by e-mail.
Course Grading
There will be a final examination; very strong emphasis on class participation (reflecting
mastery of the readings, analytical thinking, and grasp of the subject matter) and the three
papers. The grade for the course will be calculated as follows:
Final Exam
30
Issue Papers
45
Class Participation
25
(including oral presentation)
Readings
You should purchase the two books (see below). The case studies can be purchased at the
Copy Center located in 1406 Van Munching Hall. Finally, the additional readings will be
available on line at ELMS Blackboard.
Engelbeck, Marshall R., Acquisition Management, Management Concepts, 2002
Cohen, Steven, and William Eimicke, The Responsible Contract Manager, Georgetown
University Press, 2008
2
Weekly Class Assignments
Class
#1
Topic
Introduction
Assignment of 1st Issue
Paper
#2
“What we buy” – Initiating
Acquisition Process
Requirements
Paper Topic Due
#3
Federal Acquisition Process
#4
Ethics and Acquisition
First Issue Paper Due
Topic for 2nd Issue
Assigned
Reading
a. Engelbeck pp 1-37
b. Cohen and Eimicke pp. 3-22
c. Gansler, A vision of the Government as a World Class Buyer. IBM Center for
the Business of Government. Jan 2002, pp. 6-12
http://www.businessofgovernment.org/sites/default/files/A%20Vision.pdf
d. OFPP Policy Letter Work Reserved for Government Employees Draft
http://www.gpo.gov/fdsys/pkg/FR-2011-09-12/pdf/2011-23165.pdf
e. FAR Part 1
https://www.acquisition.gov/far/current/html/Subpart%201_1.html#wp113077
6
a. Terry Bahill, Bo Bentz, and Frank Dean, Discovering System Requirements,
SAND96-1620, Sandia Report, Sandia National Laboratories, USA, 1999
http://prod.sandia.gov/techlib/access-control.cgi/1996/961620.pdf
b. Army Strong: Equipped Trained and Ready, January 2011 pp. 31-38
http://usarmy.vo.llnwd.net/e2/c/downloads/213465.pdf
c. Beno, Mikael S. Does Anybody Out There Understand the Requirements
Process?
http://www.dau.mil/pubscats/Lists/ATL%20Database/Attachments/722/Beno_j
ul-aug10.pdf
d. GAO, Better Matching of Needs and Resources Will Lead to Better Weapon
System Outcomes, GAO-01-288. http://www.gao.gov/new.items/d01288.pdf
e. Hodgson, Quentin E. Deciding to Buy: Civil-Military Relations and Major
Weapons Programs. U.S. Army War College. Nov 10, 2010.
http://www.strategicstudiesinstitute.army.mil/pubs/display.cfm?PubID=1030 ,
pp. 61-82
a. DoD Directive 5000.1
http://www.dtic.mil/whs/directives/corres/pdf/500001p.pdf
b. Dillard, John, Toward Centralized Control of Defense Acquisition Programs,
Defense Acquisition Review Journal, Aug 2005 https://acc.dau.mil/adl/enUS/434065/file/56386/DARJ%20Aug.%2005%20%20Nov.%2005%20%237%20Toward%20Centralized%20Control.pdf
c. Defense Acquisition Performance Assessment Summary.
http://www.defense.gov/pubs/pdfs/DAPA%201222%20WEB%20Exec%20Summary.pdf Jan 2006
d. Mine Resistant Ambush Protected (MRAP) Vehicle. Darden Business
Publishing UV 1090, Jan 21, 2009
a. C&E pp. 23-39
b. White House Jan 21, 2009 Executive Order http://www.whitehouse.gov/thepress-office/ethics-commitments-executive-branch-personnel
c. Title 48, Vol. 1, Chapter 1, Part 3 http://ecfr.gpoaccess.gov/cgi/t/text/textidx?c=ecfr&sid=5abf95ef2bacfdf75a55a7a280cac033&rgn=div5&view=text&n
ode=48:1.0.1.1.3&idno=48
d. Branstetter, Jeffrey. Darleen Druyun: An evolving Case Study in Corruption,
Power and Procurement. Public Contract Law Journal. Vol. 34, No.3 Spring
2005
3
#5
Acquisition Planning
a.
b.
c.
d.
e.
f.
#6
Organizing for Acquisition
g.
a.
b.
c.
d.
e.
#7
Systems Engineering
f.
a.
b.
Second Issue Paper Due
c.
d.
e.
f.
g.
h.
Engelbeck pp. 77-133
C&E pp. 157-200
Kahneman, Daniel and Amos Tversky. Intuitive Prediction. (Planning fallacy)
http://www.dtic.mil/cgibin/GetTRDoc?AD=ADA047747&Location=U2&doc=GetTRDoc.pdf
FAR Part 7.000 https://www.acquisition.gov/comp/far/0511/html/Subpart%207_1.html
DHS Acquisition Planning Requirements, Section 3007
http://www.dhs.gov/xlibrary/assets/opnbiz/cpo_hsam.pdf
Best Business Practices for Fixed-Price Contracting Defense Business Board
FY10-03 http://dbb.defense.gov/pdf/FY1003_Best_Business_Practices_Fixed_Price_Contracting.pdf
Pushing the Envelope. Darden Business Publishing. UV3883
Engelbeck pp. 43-61
Cohen and Eimicke pp. 41-60
Katzenbach, Jon R. and Douglas K. Smith, The Discipline of Teams. HBR
July-AUG 2005.
USD (A,T&L), Rules Of The Road A Guide For Leading Successful Integrated
Product Teams, Oct 1999
Wagner, Gary F., and Randall L. White, F-22 Program Integrated Product
Development Teams, Program Manager July-August 1995.
http://www.dau.mil/pubscats/PubsCats/PM/articles95/wagner.pdf
Certifying AMRAAM. KSG Case C16-88-845.0
Chapter 13. Condensed GSAM Handbook. Feb 2003.
http://www.stsc.hill.af.mil/resources/tech_docs/gsam4/chap13.pdf
The Value of Systems Engineering http://www.incose.org/secoe/0103/ValueSEINCOSE04.pdf
DoD Integrating-SE-Acquisition https://acc.dau.mil/adl/enUS/423816/file/55794/Integrating-SE-Acquisition-Contracts_guide_121106.pdf
The Impact of SE on Complex Systems
http://sse.stevens.edu/fileadmin/cser/2004/papers/242-Paper152.pdf
Nelson, Eric M. Open Architecture Technical Principles and Guidelines 1.5.6,
Mar 27, 2008 https://acc.dau.mil/adl/enUS/187045/file/34492/OA%20Architectural%20Principles%20and%20Guidelin
es%20v.1.5.6.pdf
Boudreau, Michael. Acoustic Rapid COTS Insertion: A Case Study in Spiral
Development. 30 October 2006.
http://www.acquisitionresearch.org/_files/FY2006/NPS-PM-06-041.pdf
Brown, Trevor, Matthew Potoski, and David M. Van Slyke. The Challenge of
Contracting for Large Complex Projects. IBM Center for the Business of
Government. 2008
http://www.businessofgovernment.org/sites/default/files/CoastGuard%20DeepP
rgm.pdf
The Patriot Crisis. KSG Case C16-90-959.0
4
#8
Life Cycle Product
Support
Topic for 3rd Issue Paper
Assigned
a.
b.
c.
d.
e.
#9
Acquisition of Services
a.
b.
c.
f.
g.
h.
#10
Acquisition of IT
i.
a.
b.
c.
d.
e.
#11
Strategic Purchasing
a.
b.
c.
d.
e.
DoD Weapon System Acquisition Reform Product Support Assessment, Nov
2009
http://www.ndia.org/Advocacy/LegislativeandFederalIssuesUpdate/Documents
/DoD_Weapon_System_Acquisition_Reform_PSA_19NOV09.pdf
GAO-03-57 http://www.gao.gov/new.items/d0357.pdf
Geary, Steve, Scott Koster, Wesley S. Randall, and Jeffrey J. Haynie.
Performance-Based Life Cycle Product Support Strategies: Enablers For More
Effective Government Participation. Acquisition Research Journal. Oct 2010
http://www.dau.mil/pubscats/PubsCats/AR%20Journal/arj56/Geary_ARJ56.pd
f
Gansler, Jacques and William Lucyshyn, Evaluation of Performance Based
Logistics, Aug 2006
The F/A F404 Engine: Getting Lean (A). Darden Business Publishing. UVAC-2268
Cohen and Eimicke pp. 91-103
DSB. Improvements to Services Contracting. March 2011.
http://www.acq.osd.mil/dsb/reports/2011-05-Services.pdf
Czech, Peter and John Muller. Improving Services Acquisition Tradecraft:
Services Acquisition Is Not for Amateurs. Defense AT&L, July 2011
http://www.dau.mil/pubscats/ATL%20Docs/July-Aug11/Czech_Mueller.pdf
GAO. Taking a Strategic Approach to Improving Service Acquisitions. GAO02-499T. Mar 7, 2002. http://www.gao.gov/new.items/d02499t.pdf
Seven Steps to Performance–Based Services Acquisition.
https://www.acquisition.gov/comp/seven_steps/library/SevenSteps_execversio
n.pdf
Brown, Trevor L et. al. Managing Public Service Contracts: Aligning Values,
Institutions, and Markets. Public Administration Review. May/June 2006
Industry-Government Competition. KSG Case C16-94-1241.0
Chapter 17. Condensed GSAM Handbook. Feb 2003. Acquisition
Environment and Regulations.
http://www.stsc.hill.af.mil/resources/tech_docs/gsam4/chap17.pdf
DSB. Acquisition of Information Technology. March 2009
Boehm, Barry W. A Spiral Model of Software Development and Enhancement.
Computer. May 1988.
http://www.cs.umd.edu/class/spring2003/cmsc838p/Process/spiral.pdf
Chen, Yu-Che and James L. Perry. IT Outsourcing: A Primer for Public
Managers. Feb 2003.
http://www.businessofgovernment.org/sites/default/files/ITOutsourcing.pdf
Gansler, Jacques S. and William Lucyshyn Implementing The U.S. Army’s
Logistics Modernization Program. August 2009
Rendon, Rene, Commodity Sourcing Strategies: Supply Management In Action,
http://www.dtic.mil/cgibin/GetTRDoc?AD=ADA496642&Location=U2&doc=GetTRDoc.pdf
Bowman, Dan, Timothy S. Reed, Bryan J. Hudgens and David Searle. DoD is
Not IBM: The Challenges of Implementing Strategic Sourcing In Defense
Acqusition. 30 April 2006 http://www.dtic.mil/cgibin/GetTRDoc?AD=ADA498484&Location=U2&doc=GetTRDoc.pdf
GAO. Using Spend Analysis to Help Agencies Take a More Strategic Approach
to Procurement. GAO-04-870. Sept 2004.
http://www.gao.gov/new.items/d04870.pdf
Moon, M. Jae. State Government E-Procurement in the Information Age:
Issues, Practices, and Trends. September 2002
http://www.businessofgovernment.org/sites/default/files/StateGovernmentProcu
rement.pdf
KSG Case C-15-08-1925.0 Experiments in Public Procurement
5
#12
Supporting
Contingencies
a.
b.
c.
#13
Alternative Options
d.
a.
b.
Third Issue Paper Due
c.
#14
Program Management
d.
a.
b.
c.
d.
e.
f.
#15
Dunn, Richard L. Contractors on The Battlefield: Resolving The Remaining
Policy Issues. May, 2010
Grasso, Valerie Bailey. Defense Logistical Support Contracts in Iraq and
Afghanistan: Issues for Congress. CRS Report. September 20, 2010
http://www.fas.org/sgp/crs/natsec/RL33834.pdf
CBO. Logistics Support for Deployed Military Forces
http://www.cbo.gov/ftpdocs/67xx/doc6794/10-20MilitaryLogisticsSupport.pdf
Wal-Marts Response to Hurricane Katrina. KSG Case C16-07-1876.0
Dunn, Richard L. Injecting New Ideas and New Approaches in Defense
Systems: Are “Other Transactions” An Answer? July 2009
Gansler, Jacques. Moving Toward Market-Based Government: The Changing
Role of Government as the Provider. IBM Center for the Business of
Government. June 2003.
Gansler, Jacques and William Lucyshyn. Implementing Alternative Sourcing
Strategies: Four Case Studies. IBM Center for the Business of Government.
Oct 2004
The Boeing Tanker Lease Deal (A). KSG Case CR-16-06-1845.0
Cohen and Eimicke pp. 119-157
Army COR Manual
Mills, Steve, Scott Fouse, and Allen Green. Creating and Sustaining an
Effective Government–Defense Industry Partnership. Acquisition Research
Journal. July 2011
Kwak, Young Hoon and Frank T. Anbari. An Introduction to Earned Value
Management (EVM). IBM Center for the Business of Government. 2010.
http://www.businessofgovernment.org/sites/default/files/Project%20Managem
ent%20in%20Government%20Report.pdf
Matta, N.F., & Ashkenas, R.N. (2003). Why good projects fail anyway.
Harvard Business Review. 81(9), 109-114.
Virginia-Class Submarine: Two for Four in 2012 (A). Darden Business
Publishing. UVA-C-1384
Student Presentations
Final Exam
6