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An evaluation of the total package procurement - PDF

304 Pages·2008·10.31 MB·English
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LIBRARY OF THE MASSACHUSETTS INSTITUTE OF TECHNOLOGY Research Program on the Management of Science and Technology AN EVALUATION OF THE TOTAL PACKAGE PROCUREMENT CONCEPT AS EXEMPLIFIED BY THREE AIR FORCE WEAPON SYSTEM CONTRACTS Albert J. Gravallese June, 1968 #330-68 The author is with the AVCO Corporation, Wilmington, Massachusetts. He was Program Manager, Mark 1, Penetration Aids, before joining the Sloan Program for 1967-68. This study was his thesis for the degree of Master of Science, 1968, RECEIVED OCT 17 1968 M. 1. T. LI3RAKIES AN EVALUATION OF THE TOTAL PACKAGE PROCUREMENT CONCEPT AS EXEMPLIFIED BY THREE AIR FORCE WEAPON SYSTEM CONTRACTS by Albert J. Gravallese Submitted to the Alfred P. Sloan School of Management on May 17, 1968 in partial ful- fillment of the requirements for the degree of Master of Science in Management. ABSTRACT A recent trend in Air Force procurement practices has required potential contractors on major weapon systems to compete for fixed price incentive con- tracts covering all phases of system acquisition--research and development, production, and as much follow-on support as feasible. This total package pro- curement concept (TPPC) represents an attempt to circumvent the weaknesses of conventional procurement practices, which involve separate, sequential con- tracts for development and production. This study evaluates the TPPC by comparing its intended objectives with the actual experiences of contractors and Air Force procurement officers. Three specific total package contracts were studied: 1. Lockheed's C-5A military cargo transport; 2. Boeing's AGM-69A short-range attack missile (SRAM); and 3. Avco's Mark 17 reentry system. Although none of these contracts has been completed, each has progressed far enough into development to permit meaningful assessment of performance. A review of the literature and personal communication with the "architect" of the TPPC provided a definition of the concept's intended objectives, against VI which performance could be evaluated. Performance was judged by interviews with senior-level contractor and Air Force personnel who guided the programs listed above. Results of the study show that, in general, the total package procurement concept falls short of its intended objectives. Its major advantage is the provi- sion of firm government visibility of probable production costs. However, sys- tem requirements do not seem to be better defined; "buying-in" continues to prevail; and maintainability, reliability, and economy are not significantly im- proved. In addition, some benefits ascribed to the TPPC are actually common to all competitive fixed price incentive contracts (i. e. , efficiency and careful selection of sources of supplies). Based on these conclusions and other observations provided by the study, it is recommended that strict limits be placed on candidate programs for total package procurement. Only those programs which are generally independent of any major system, and whose systems effectiveness can be quantitatively defined, should be considered for the TPPC. Candidate programs should also have a very low probability of change, and should not include undefined multiple and/or concurrent interfaces. Strategic -weapons are not good candidates for total package procurement, nor are systems whose qualitative performance param- eters are based on assessments of enemy capabilities. Thesis Advisor: Donald G. Marquis Title: Professor of Management TABLE OF CONTENTS CHAPTER PAGE INTRODUCTION I. 1 Problem Definition 1 Method of Analysis 2 Related Studies 4 Study Approach 6 CONCEPT DEVELOPMENT II. 9 Early History 9 Toward Incentive Contracts 10 Toward Competition 11 , Toward Fixed Price Contracts 13 Toward a New Concept 14 The Total Package Concept 18 Future of TPPC 23 ELEMENTS OF THE TOTAL PACKAGE PROCUREMENT III. CONCEPT 25 Pre-contract Activity 26 Contract Definition 29 Contractor Activity 33 Government Activity 34 Model Contract Development 35 General 35 Special Provisions 37 CHAPTER PAGE Source Selection 44 Development Administration 46 IV. TPPC APPLICATION AND RESULTS 47 Basic Premise 48 Weapon Acquisition Process 51 Selection of Competitors 55 Concept Formulation 58 Contract Definition 63 Schedule 63 Cost 66 Manpower 70 Proposal Activity 72 Data Submittals 73 Cost Data 75 Model Contract 79 „ Collaboration 81 Technical Transfusion 84 Source Selection 85 Development Program Implementation 90 Risks versus Profits 91 Management and Control 144

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Results of the study show that, in general, the total package procurement concept falls .. tractors on the basis of a partnership arrangement with the government. The terms . Industry conference at Wright-Patterson AFB. Air Force .. perform a great deal more analysis and a more detailed projectio
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