best practices for effective prosecution of and ... · • pre-award bid protests ... separate...
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1government contracting
@VenableLLP@DHG_GovConBest Practices for Effective
Prosecution of and Intervention in Bid ProtestsPaul Debolt, Partner, VenableBill Walter, Partner, DHG
2government contracting
@VenableLLP@DHG_GovConSpeaker Information @VenableLLP@DHG_GovCon
PaulDebolt,PartnerVenableLLP(202)[email protected]
BillWalter,PartnerDixonHughesGoodmanLLP(703)[email protected]
3government contracting
@VenableLLP@DHG_GovConAgenda
• Pre-AwardBidProtests• Post-AwardBidProtests• AnEffectiveDebriefing• MakeanInformedDecision• Intervening• LessonsLearned
4government contracting
@VenableLLP@DHG_GovCon
Pre-Award Protests
5government contracting
@VenableLLP@DHG_GovConPre-Award Bid Protests:
Protesting the Solicitation
• Undulyrestrictivetermsinthesolicitation• Inclusionofimproperclauseorprovision• Failuretoincludeamandatoryclauseorprovision• Improperbundlingofrequirements• Ambiguoussolicitationprovisions• Unreasonableevaluationmethod• UseofFSScontractfornon-FSSpurchase• Changedrequirements• Improperdisclosureofproprietaryinformation
6government contracting
@VenableLLP@DHG_GovConPre-Award Bid Protests:
Conversation for Corporate Team
• Isthereanythinginthesolicitationthatappearsskewedtowardsaparticularofferor,e.g.,theincumbent?
• Isthereanythinginthesolicitationthatrendersyourcompanyineligibleforaward?
• Doesthesolicitationgiveyouadisadvantagethatitdoesnotgiveanyoneelse?
• Forambiguitiesinsolicitation,istheQ&Aperiodstillopen?• Probabilityofwinifperceiveddefectsremaininthe
solicitationvs.probabilityofwinwithcorrectedsolicitation• Sizeandstrategicimportanceofprocurement• IDIQvs.stand-alonecontract• Impactoncustomerrelationship
7government contracting
@VenableLLP@DHG_GovConPre-Award Bid Protests: Timeliness
• Excludedfromthecompetition– Adebriefingmustberequestedin writing totheCOwithinthree
daysafterreceivingnoticeofexclusion– Maybelimited– Canrequesttodelaythedebriefinguntilafteraward– TheCOmayrefusetoprovideapre-awarddebriefing,however,the
COmustprovideapost-awarddebriefingwithinfivedays• Post-awarddebriefingsdonotextendthetimetoprotest- the
clockstartstickingwhenacompanylearnsofitsexclusion.
8government contracting
@VenableLLP@DHG_GovCon
Post-Award Bid Protests
9government contracting
@VenableLLP@DHG_GovConPost-Award Bid Protests Come Into Play When:
• Yourcompanyischallengingthegovernment’sawardofacontracttoacompetitor(i.e.,yourcompanyistheprotester),or
• Thegovernmenthasawardedyourcompanyacontractthatisbeingchallengedbyacompetitor(i.e.,yourcompanyistheintervenor).
10government contracting
@VenableLLP@DHG_GovConLitigating as the Protester: General Overview
• Thegovernmentannouncesthecontractaward• Yourcompanyrequestsadebriefinginwriting• Yourcompanyreceivesthedebriefing• Yourcompanydecideswhether tofileaprotest• Yourcompanydecideswhere tofileaprotest• YourcompanydecideswhethertorequestaCICAstay• Protestprocedures• Correctiveaction• Protestdecision• Appeal
11government contracting
@VenableLLP@DHG_GovConRequesting a Debriefing (Negotiated Procurements),
Timeliness, and Stay of Performance
• Adebriefingmustberequestedin writing andmustbereceivedbytheagencywithinthree calendardaysafteryourcompanyreceivesnoticeofcontractaward.
• Thedebriefingissupposedtooccurwithinfive calendardaysaftertheagencyreceivesyourcompany’srequest.
• Strategies:– RequesttoschedulethedebriefingforaThursdayorFridaytomaximize
thetimingforastay(trytoavoiddebriefingsMonday– Wednesday);– Trytoacceptthefirstdebriefingdateofferedbytheagency(thetiming
rulesforastayaretriggeredbythisdate,notthedateyourcompanyisactuallydebriefed);and
– BEWAREOFRECEIVINGAWRITTENPACKAGEBEFORETHELIVEDEBRIEFING.
• Follow-upsessionsgenerallydonotconstitutea“continuingdebriefing.”
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@VenableLLP@DHG_GovCon
Timeliness
13government contracting
@VenableLLP@DHG_GovConTimeliness:
Post-Award Bid Protests at the Agency
OUTCOME WHEN PROTEST MUST BE FILED
Post-award protest Protests must be filed no later than 10 days after the basis of the protest is known or should have been known, whichever is earlier.
Post-award stay of performance (FAR) Upon receipt of a protest within 10 days after contract award or five days after a debriefing date offered to the protester in response to a timely debriefing request, whichever is later, the contracting officer shall immediately suspend performance pending resolution of the protest, unless someone above the contracting officer or another agency official justifies the contract award in writing for urgent and compelling reasons or in the government’s best interest.Note: Agencies will rarely override the automatic stay, considering the short time frame for issuing protest decisions. Stay overrides are more likely in GAO protests, which take longer.
14government contracting
@VenableLLP@DHG_GovConTimeliness: Post-Award Bid Protests at the GAO
OUTCOME WHEN PROTEST MUST BE FILED
Post-award protest Protests of other than solicitation improprieties must be filed no later than 10 days after the basis of the protest is known or should have been known, whichever is earlier, or within 10 days after a “required” debriefing has been held.
“Appeal” of agency-level protest
If the agency-level protest was timely filed, any subsequent protest to the GAO must be filed within 10 days of actual or constructive knowledge of initial “adverse agency action.” Pursuing an agency-level protest does not extend the time for obtaining a stay at GAO.
Post-award stay of performance
Upon receiving notice of a protest from GAO within 10 days after the date of contract award or five days after a “required” debriefing date, whichever is later, contract performance must be suspended unless the head of the contracting agency authorizes continued performance based on a finding that contracting performance is in the USG’s best interest or urgent and compelling circumstances that significantly affect the interests of the government and will not permit waiting for GAO’s decision.
15government contracting
@VenableLLP@DHG_GovConStay of Performance: Key Information
• TheclockistriggeredbytheUSG’sreceiptofnotice oftheprotestfromGAO (withinonedayofGAO’sownreceipt).Inotherwords,protestersoftenhavelesstimetofilethantheythink.
• Ifaprotestisbeingfiledshortlybeforethedeadlinefortriggeringanautomaticstayofawardorperformance,theprotestershouldbringthistoGAO’sattentionatthetimeoffiling;GAOcanattempttoprovideexpeditednoticeoftheprotesttotheagency.
• WhiletelephonenoticefromGAOtotheagencymay triggerastatutorystay,GAOdoesnotreviewagencydecisionsinthisregard,andwon’tconsideraprotestchallenginganagency’sdecisionnottodelayaprocurement.
• Thenoticemustbereceivedwithin10daysofcontractawardorfivedaysafterthedateofferedforarequireddebriefing,whicheverislater.
• Assumingthedebriefingdateislater…
16government contracting
@VenableLLP@DHG_GovConObtaining a Stay of
Performance in a GAO Protest
ThursdayDebriefingOffered– MustFileonDay4toEnsureCICAStay
17government contracting
@VenableLLP@DHG_GovConObtaining a Stay of
Performance in a GAO Protest
FridayDebriefingOffered– MustFileonDay4toEnsureCICAStay
18government contracting
@VenableLLP@DHG_GovConObtaining a Stay of
Performance in a GAO Protest
MondayDebriefingOffered– MustFileonDay3toEnsureCICAStay
19government contracting
@VenableLLP@DHG_GovConObtaining a Stay of
Performance in a GAO Protest
TuesdayDebriefingOffered– MustFileonDay2toEnsureCICAStay
20government contracting
@VenableLLP@DHG_GovConObtaining a Stay of
Performance in a GAO Protest
WednesdayDebriefingOffered– MustFileonDay1toEnsureCICAStay
21government contracting
@VenableLLP@DHG_GovConTimeliness: Post-Award Bid
Protests at the Court of Federal Claims
TYPE OF PROTEST WHEN PROTEST MUST BE FILED
Post-award protest Six-year statute of limitations includes post-award protest matters. No strict filing deadlines; however, COFC requires protester’s counsel to provide at least 24-hour advance notice of filing a protest to the DOJ's commercial litigation branch, the COFC clerk, the procuring agency’s CO (by fax), and the apparently successful offeror(s) (if any). Further, delay before the COFC is dangerous even if certain strict GAO and agency-level protest deadlines do not apply. For example, the COFC has found that delay in filing a protest can be prejudicial to a protester's case. See Wit Assocs., Inc., 62 Fed. Cl. at 662 n.5.
Protest of the overrideto a stay
Only the COFC has jurisdiction to hear challenges to the agency’s decision to override the automatic stay; the GAO will not review an agency’s decision to override the stay. However, a protester may file a separate action at the COFC to reinstate a stay while the GAO protest is pending.
Post-award stay of performance = temporary restraining order
To secure a stay of performance the protester must seek a temporary restraining order (TRO) and prove (1) likelihood of success on the merits; (2) irreparable harm to the protester if the TRO is not granted; (3) lesser harm to the USG and awardee if the TRO is granted; and (4) the TRO is in the public interest.
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@VenableLLP@DHG_GovCon
An Effective Debriefing
23government contracting
@VenableLLP@DHG_GovConThe Debriefing: What Information Should Be
Released in Negotiated Procurements?
• FAR15.506(d)requiresthatataminimum,adebriefingshouldinclude:– Theagency’sevaluationofthesignificantweaknessesanddeficienciesin
theofferor’sproposal;– Theoverallevaluatedcostorprice(includingunitprices)andthetechnical
rating(ifapplicable)oftheawardeeandthedebriefedofferor;– Pastperformanceinformationonthedebriefedofferor;– Theoverallrankingofallofferors,ifsuchrankingwasdevelopedbythe
agency;– Asummaryoftheawardrationale;and– Responsestotheofferor’srelevantquestionswithrespecttowhether
theagencyfollowedthesourceselectionproceduresinthesolicitation,regulationsandotherapplicableauthorities.
– Foracquisitionsofcommercialitems,theagencyshalldisclosethemakeandmodeloftheitemtobedeliveredbythesuccessfulofferor.
• Thefocuswillbeontheofferor’sproposal,notonotherofferorproposals!
24government contracting
@VenableLLP@DHG_GovConThe Debriefing: FAR Part 8
q Not required for all solicitationsq Debriefings require only “a brief explanation of the basis for the award decision.”
• A debriefing is required where:– The solicitation exceeds the
simplified acquisition threshold and contains a statement of work, and
– The agency awards on factors other than price alone.
• Required for competitive BPAs when the award was based on factors other than price alone.
25government contracting
@VenableLLP@DHG_GovConDebriefing Strategies
• In-PersonRequest– Enforceopportunityforaninteractiveprocess
• PreparationofQuestions– Basicquestionsshouldbepreparedaheadofawarddecision– Tailoryourquestionstorelevantissues– Considersendingwithdebriefingrequest
• DocumentRequests– Redactedsourceselectionplananddecisiondocument– Governmentindependentcostorstaffingestimates
• ClosingtheDebriefing– Openpromisesofdocumentsorotheranswers– Requestthatdebriefingremainopenuntilopenissuesareclosed
26government contracting
@VenableLLP@DHG_GovConThe Strategic Debriefing
• Askin-depthquestions• Askgeneralquestionsfirst,andthenmorespecificquestions• Setthetone:“friendlycost-examination”style• Watchforvisualcuessuchasfacialexpressionsandbody
language– butdon’treadtoomuchintoit,asitmaybearedherring
• Assignsomeonetotakedetailed notes,includingdocumentingvisualcues
• Shouldanattorneyparticipate?
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@VenableLLP@DHG_GovConThe Effective Debriefing – Top Ten Questions
1. Whatratingswereassignedforeachfactorandsubfactoroftheawardee’sproposalandwhy?
2. Whatratingswereassignedforeachfactorandsubfactorofyourcompany’sproposalandwhy?
3. What,ifany,significantadvantages/disadvantagesdidtheagencyperceivewereprovidedbytheawardee’sproposal?
4. What,ifanysignificantadvantages/disadvantagesdidtheagencyperceivewereprovidedbyyourcompany’sproposal?
5. Whatratingswereassignedtoyourproposalandtheawardee’sproposalforpastperformanceandwhy?
6. Whatadjustments,ifany,weremadetotheawardee’sproposedprice/cost?7. Whatadjustments,ifany,weremadetoyourproposedprice/cost?8. Wasourproposalprice/costthelowest(orsecondlowest)?9. Whatwastherationaleforthesourceselection,includingtherationaleforanycost-
technicaltrade-off?10. Whatspecificallywerethebestvaluediscriminatorsthatfavoredtheawardee’s
proposaloveryourproposal,anddisfavoredyourproposal?
28government contracting
@VenableLLP@DHG_GovConEffective Post-Debriefing Strategy
• Documentyourimpressionswhiletheyarefresh(notjustthenote-taker)• Identifyaspectsofyourcompany’sproposalthattheagencyfailedto
understandorconsider• Identifyanyirregularitiesinthewaytheagencyperformedtheevaluation
(i.e.,whethertheevaluationadheredtothesolicitation’scriteriainSectionM)
• Identifyanyevidenceyourcompanywastreateddifferentlyfromtheawardee(e.g.,theagencyengagedindiscussionswiththeawardeebutdidnotdothesamewithyourcompany,ortheagencyrequiredyourcompanytosubmitdocumentationthattheawardeewasnotrequiredtosubmit)
• Identifywhethertheawardeetookexceptiontoanysolicitationrequirements
• Werethereanyorganizationalconflictsofinterestthatagencyfailedtoanticipateorprotectagainst?
29government contracting
@VenableLLP@DHG_GovConPost-Award Debriefing –
Questions for Corporate Team
• Didtheagencytalktoyourcompetitors?• Didtheagencymisleadyouaboutwhatwasbeingsought?• IsthereanOCIissueinthesolicitation,e.g.,isthereIV&V
workorsaleofgoodsorservicesthatofferorshavepreviouslyevaluated?
• Ifbest-valueaward,istradeoffanalysisadequatelydocumented?
• Butfortheagency’sflawedprocurement,wouldyouhavehadasubstantialchanceataward?
• Whoistheincumbent?Ifyouaretheincumbent,whateffectdoesprotesthaveonexpiringcontract?Ifawardeeistheincumbent,whateffectdoesprotesthaveonexpiringcontract?
30government contracting
@VenableLLP@DHG_GovCon
Make an Informed Decision
31government contracting
@VenableLLP@DHG_GovConDeciding Whether to File a Protest:
Standing and Technical Merit Considerations
• TobringabidprotestattheGAO,theprotestermustbean“interestedparty,”i.e.,any“actualorprospectivebidderorofferorwhosedirecteconomicinterestwouldbeaffectedbytheawardofacontractorbythefailuretoawardacontract.”4C.F.R.§21.0(a)(1).
• TobringabidprotestattheCOFC,theprotestermustbean“interestedparty,”i.e.,showthattherewasa“substantialchance”theprotesterwouldhavereceivedthecontractawardbutfortheallegederrorintheprocurementprocess.
• Ruleofthumb:Mustbeabletoargueprotesteris“nextinline”foraward.
• TechnicalMeritConsiderations– Aretherelegitimatepotentialgroundstoprotest?e.g.,wasthereanimproprietyinthe
agency’sevaluation?– Objectivevs.subjectivejudgments;violationsoflawvs.agencydiscretion– Canthecompanyshowprejudice?Wasyourcompanytreatedfairlyandequally?– Werethereanyorganizationalconflictsofinterest?
32government contracting
@VenableLLP@DHG_GovConDeciding Whether to File a Protest:
Business Considerations
• StrategicBusinessConsiderations– Whatareyoutryingtoaccomplish?– Wastheprograma“mustwin”inakeystrategicareaforthecompany?– Willyourcompanybyshutoutoftherelevantlineofbusinessbecauseoftheaward?– Arethereothernear-termopportunitiestowinworkinthisarea?– Isthecompanytheincumbentcontractor?– Whatisthecompanywillingtoinvestinaprotest?– Willthecompanybeabletowinare-evaluation?– Dothegroundsofprotestcauseconcernforfutureprocurements?
• CustomerRelationshipConsiderations– Whatisthelikelyimpactoftheprotestonyourcompany‘srelationshipwiththecustomer?
33government contracting
@VenableLLP@DHG_GovConKey Forum Selection Considerations
• Stayofcontractperformance• Scopeofadministrativerecord• Hearings• Natureandobjectiveofprotest• Timefordecision• DOJinvolvement• Standardofreview• Costoflitigation• Differentlegaloutcomes
34government contracting
@VenableLLP@DHG_GovConSummary Comparison –
Agency vs. GAO vs. COFC
• Jurisdiction• AgencyDecisionvs.GAORecommendationvs.COFCOrder• AutomaticStayvs.Injunction(TRO)• TimelinessRequirements• 35/100/???DayResolution• ProtectiveOrder• SummaryDismissals• StandardofReview• Discovery• ADR
35government contracting
@VenableLLP@DHG_GovConPost-Award Bid Protests
• Lackofmeaningfuldiscussions• Misleadingdiscussions• Unequaldiscussions• Disparatetreatment• OCI• Failuretofollowthesolicitation’sevaluationcriteria• Failuretoconsiderrelevantinformation• Flawedtechnicalevaluation• Flawedpastperformanceevaluation• Flawedcostevaluation• Flawedpriceanalysis
36government contracting
@VenableLLP@DHG_GovConGAO’s Annual Report for FY 2015
• Thefivemostcommonbasesforsustainingprotestswereasfollows:– Unreasonablecostorpriceevaluation– Unreasonablepastperformanceevaluation– Failuretofollowevaluationcriteria– Inadequatedocumentationoftherecord– Unreasonabletechnicalevaluation
37government contracting
@VenableLLP@DHG_GovConPrice Realism at GAO
• Realismandreasonablenessaredistinctconcepts.
• TheFARdoesnotusetheterm“pricerealism.”Instead,FAR§15.404-1(d)(3)allowstheapplicationofcostrealismprinciplestocompetitivefixed-priceproposalsor,inexceptionalcases,onothercompetitivefixed-price-typecontractsforthepurposeofassessingperformanceriskandresponsibility.
• Whenevaluatingforpricerealism,theUSGcannotadjusttheofferedpricesasaresultoftheanalysis.
• GAOdecisionshaveaddressedfourgeneralprinciplesregardingpricerealism.
38government contracting
@VenableLLP@DHG_GovConPrice Realism General Principles:
• Analysisgenerallynotrequired• Ifnotinsolicitation,analysisprohibited• Ifsolicitationprovides,analysisrequired• Compensationplansrequireanalysis
39government contracting
@VenableLLP@DHG_GovCon
Intervening
40government contracting
@VenableLLP@DHG_GovConDeciding Whether to Intervene
• Don’twaittobeasked;agenciesmayrefrainfromrequestinginterventionsoastoavoidconvertingbidprotestcostsintoallowablecostschargeabletothegovernment.
• Awardee’sinterestsmaynotalignperfectlywithagency’s(e.g.,agencymaybeinclinedtotakecorrectiveaction).Astheintervenor,theawardeecanconvincetheagencytodefendtheaward.
• Twotypesofintervention:– “Light,”i.e.,monitor,assistagency,reportbackriskanalysis;or– “Active,”i.e., submitbriefstoGAO,helpagencywriteagency
report,etc.
41government contracting
@VenableLLP@DHG_GovConIntervention: Conversation with Operations
• Novisibilityintoprotester’sunredactedclaimswithoutintervention
• IntervenorcanhelpdefendawardbyassistingagencyinitseffortsandhelpingtoconvinceGAOtodenyprotest
• Interventionmayrequiresupportofoperationstoexplaintoagencycounselhighlytechnicalissuesinprotester’sclaims
• Awardeewantstoavoidnotonlysustainedprotestbutalsocorrectiveaction
• InFY2015,GAOsustained12%ofbidprotests(slightlydownfromFY2014),andagencytookcorrectiveactionin33%(slightlyupfromFY2014).
• Interventionisawaytoincreasecontactwithagency,allowingawardeetodissuadeagencyfromtakingcorrectiveaction
42government contracting
@VenableLLP@DHG_GovConTop 10 Considerations as Potential Intervenor
1. Discouragecorrectiveaction2. Helpshapecorrectiveaction3. Limittherecord4. Supplementallegalsupporttoagency5. Advanceargumentsagencymaybeunwillingtomake6. Providedifferentperspective7. Protectproprietaryinformation8. Factualsupport/technicalunderstanding(e.g.,declarations)9. Showofsupport10.Monitordevelopments
43government contracting
@VenableLLP@DHG_GovConParticipating in the Protest Proceedings
• Engagingindiscoveryandassistingintheagency’soppositiontotheprotester’sdiscovery(suchasdocumentrequestsandrequeststocompelproductionofdocuments)
• Reviewingtheagencyreportoradministrativerecord• Participatinginhearings• Seekingtheadmissionofexpertsunderaprotectiveorder• Preparingcomments,motionsand/orotherbriefs• Handlingsupplementalgroundsofprotest/amendmentsto
theComplaint• Controllingand/oravoidingsettlement/correctiveaction
44government contracting
@VenableLLP@DHG_GovCon
Lessons Learned
45government contracting
@VenableLLP@DHG_GovConOverview of Lessons Learned
• Maximizepre-proposalmarketing• Reviewsolicitation• Considerpre-awardprotests• Considerfiscalenvironment• GoontheoffensivewithOCIs• Pastperformancereferences• Proposaldetails• Responsestodiscussionquestions
46government contracting
@VenableLLP@DHG_GovConAdditional Things to Remember
• Neatnesscounts• Empiricaldatacollectedfromgovernment-observedtesting
willreceivethegreatestconsideration• Writetheproposaltothesolicitation’srequirements• Donotassumethatthegovernmentreviewerswillseeallof
yourproposal• Explainwhyyoubelievethejobcanbeperformedwithfewer
hours,personnel,oratlowercosts
47government contracting
@VenableLLP@DHG_GovCon
Protests – Coming Attractions
48government contracting
@VenableLLP@DHG_GovConWhat to expect moving forward . . .
• GAOforthefirsttimesuspendedacompany’srighttoprotest.GAOdeterminedthattoomanyofLatvianConnection’s150proteststodatethisfiscalyearwere“frivolous”andthattheyhadmany“frivolous”protestsinpreviousyearsaswell.
• Second,yourrighttoprotestmayexpire.Theauthoritytofileprotestsagainsttaskanddelivery(T&D)ordersawardedbycivilianagenciesissettoexpireon30Sep2016.
• Third,Congressmayeliminatetherighttoprotest.Thereisproposedlanguageinthefiscalyear(FY)17NationalDefenseAuthorizationAct(NDAA)toeliminatetherighttoprotesttaskanddeliveryordersintheDepartmentofDefense(DoD)iftheSecretaryofDefense(SECDEF)createsanombudsman.
49government contracting
@VenableLLP@DHG_GovCon
Questions . . .
50government contracting
@VenableLLP@DHG_GovCon
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