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Prepared for the United States Air Force
Approved for public release, distribution unlimited
Perspectives from the Commercial Sector
Defining Needs and Managing
Performance of Installation
Support Contracts
R
|
PROJECT AIR FORCE
Laura H. Baldwin, Sarah Hunter
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© Copyright 2004 RAND Corporation
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Library of Congress Cataloging-in-Publication Data
Baldwin, Laura H., 1967-
Defining needs and managing performance of installation support contracts :
perspectives from the commercial sector / Laura H. Baldwin, Sarah Hunter.
p. cm.
Includes bibliographical references.
“MR-1812.”
ISBN 0-8330-3495-2 (pbk. : alk. paper)
1. Defense contracts—United States—Cost effectiveness. 2. United States. Air
Force—Facilities. I. Hunter, Sarah, 1968– II.Title.
UG1123.B33 2003
358.4'16212—dc22
2003023326
The research reported here was sponsored by the United States Air Force
under Contract F49642-01-C-0003. Further information may
be obtained from the Strategic Planning Division, Directorate of Plans,
Hq USAF.
iii
PREFACE
The Air Force is in the process of implementing performance-based
practices within its service contracts to improve service quality and
reduce costs. These practices include conveying to providers the Air
Force’s desired service outcomes, rather than how the service should
be performed; the use of measurable performance standards and
quality assurance surveillance plans to track performance against
clear goals; and the use of positive and negative incentives to align
provider efforts with Air Force needs. RAND Project AIR FORCE is
supporting these implementation efforts.
This report describes an analysis of best commercial practices for
purchasing facilities and food services that are analogous to services
the Air Force purchases to support its installations. We examine
whether and how commercial firms apply performance-based prac-
tices in these service contracts and draw out relevant and potentially
actionable “lessons learned” for the Air Force. This information
should be of interest to contracting officers, technical experts (e.g.,
civil engineers), and installation commanders who participate in
service acquisitions for installation services.
This research is a product of the study, “Supporting the Warfighter
Through Improved Service Contracts,” sponsored by the Deputy
Assistant Secretary for Contracting (SAF/AQC) and conducted within
the Resource Management Program of RAND Project AIR FORCE.
For almost a decade, the RAND Corporation has been helping the
Department of Defense improve the way it purchases goods and
services. Readers may also be interested in selected related studies:
iv Defining Needs and Managing Performance of Installation Support Contracts
• Implementing Performance-Based Services Acquisition (PBSA):
Perspectives from an Air Logistics Center and a Product Center,
John Ausink, Laura H. Baldwin, Sarah Hunter, and Chad Shirley,
RAND Corporation, DB-388-AF, 2002, which can be downloaded
from www.rand.org/publications/DB/DB388
• Implementing Best Purchasing and Supply Management Prac-
tices: Lessons from Innovative Commercial Firms, Nancy Y.
Moore, Laura H. Baldwin, Frank Camm, and Cynthia R. Cook,
RAND Corporation, DB-334-AF, 2002, which can be downloaded
from www.rand.org/publications/DB/DB334
• Federal Contract Bundling: A Framework for Making and
Justifying Decisions for Purchased Services, Laura H. Baldwin,
Frank Camm, and Nancy Y. Moore, RAND Corporation, MR-
1224-AF, 2001, which can be downloaded from www.rand.org/
publications/MR/MR1224
• Performance-Based Contracting in the Air Force: A Report on
Experiences in the Field, John Ausink, Frank Camm, and Charles
Cannon, RAND Corporation, DB-342-AF, 2001, which can be
downloaded from www.rand.org/publications/DB/DB342
• Strategic Sourcing: Measuring and Managing Performance, Laura
H. Baldwin, Frank Camm, and Nancy Y. Moore, RAND
Corporation, DB-287-AF, 2000, which can be downloaded from
www.rand.org/publications/DB/DB287
• Incentives to Undertake Sourcing Studies in the Air Force, Laura
H. Baldwin, Frank Camm, Edward G. Keating, and Ellen M. Pint,
RAND Corporation, DB-240-AF, 1998
• Strategic Sourcing: Theory and Evidence from Economics and
Business Management, Ellen M. Pint and Laura H. Baldwin,
RAND Corporation, MR-865-AF, 1997.
RAND PROJECT AIR FORCE
RAND Project AIR FORCE (PAF), a division of the RAND Corporation,
is the U.S. Air Force’s federally funded research and development
center for studies and analyses. PAF provides the Air Force with in-
dependent analyses of policy alternatives affecting the development,
employment, combat readiness, and support of current and future
Preface v
aerospace forces. Research is performed in four programs: Aero-
space Force Development; Manpower, Personnel, and Training;
Resource Management; and Strategy and Doctrine.
Additional information about PAF is available on our website at
http://www.rand.org/paf.
vii
CONTENTS
Preface iii
Tables ix
Summary xi
Acknowledgments xvii
Acronyms xix
Chapter One
RECENT POLICY EMPHASIS ON PERFORMANCE-BASED
SERVICES ACQUISITION (PBSA) 1
Outline of the Report 3
Chapter Two
GATHERING INFORMATION FROM LEADING
COMMERCIAL BUYERS AND PROVIDERS OF
FACILITIES AND FOOD SERVICES 5
Selection of Firms 5
Description of Interviewees 7
Interview Protocol 8
Chapter Three
RESEARCH FINDINGS ON SERVICES, CONTRACT
TYPES, AND THE USE OF PERFORMANCE-BASED
PRACTICES 11
Types of Services Discussed 11
Contract Pricing and Length 12
viii Defining Needs and Managing Performance of Installation Support Contracts
Use of Performance-Based Practices 14
Conveying Service Needs 14
Performance Management 17
Chapter Four
IMPLICATIONS FOR THE AIR FORCE 27
Air Force Experience to Date 27
Suggestions for the Future 29
Appendix
A. INTERVIEW PROTOCOLS 33
B. EXAMPLES OF PERFORMANCE METRICS 37
C. REPORTED USE OF PERFORMANCE-BASED
PRACTICES 43
References 55
ix
TABLES
2.1. Selection of Firms for the Study 7
2.2. General Descriptions of Interviewees 8
3.1. Types of Services Purchased or Provided 12
3.2. Contract Pricing and Length 14
. state-
ments of needs, refinement and reduction of performance metrics,
xiv Defining Needs and Managing Performance of Installation Support Contracts
and contractual. order@rand.org
Library of Congress Cataloging-in-Publication Data
Baldwin, Laura H., 1967-
Defining needs and managing performance of installation support contracts
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