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HHS OCIO IT Earned Value Management Processes and Procedures

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December 30, 2005
Project: HHS OCIO IT Earned Value Management Processes and Procedures
Document Number: HHS-OCIO-2005.0004P

Table of Contents

1. Purpose
2. Background
3. Scope
4. HHS EVM Tier Structure
5. Roles
5.1 HHS CIO
5.2 HHS ITIRB and OPDIV ITIRBs
5.3 HHS CIO Council
5.4 The HHS Capital Planning and Investment Control Officer
5.5 OPDIV CIO
5.6 Head of Contracting Activity
5.7 The OPDIV CPIC Manager
5.8 IT Investment Contracting Officer
5.9 Contracting Officer’s Technical Representative (COTR)
5.10 IT Investment Manager
5.11 Investment Team Subject Matter Experts
6. Process
6.1 Inputs and Entry Criteria
6.1.1 Inputs
6.1.2 Entry Criteria
6.2 Context and Process Diagrams
6.3 Process Steps and Responsibilities
6.4 Outputs and Exit Criteria
6.4.1 Outputs
6.4.2  Exit Criteria
7. Procedures
7.1 Pre-Award Activities
7.1.1 Negotiate EVM Requirements
7.1.2 Negotiate Technical Requirements
7.1.3 Prepare Statement of Work (SOW)
7.1.4 Finalize Contract Work Breakdown Structure (WBS)
7.1.5 Prepare CDRL and DIDs
7.2 Post-Award Activities
7.2.1 Conduct IBR
7.2.2 Conduct Periodic EVM Reviews
7.2.3 Analyze EVM Reports
8. Applicable Legislation, Policies, Standards, and Guidance
8.1 Legislation
8.2 Policies
8.3 Standards
8.4 Department Guidance
8.5 Other Guidance
9.  Information and Assistance
10. Effective Date/Implementation
11. Approved
Attachment 1:  ANSI/EIA 748-A-1998 Guidelines
Attachment 1:  ANSI/EIA 748-A-1998 Guidelines
Attachment 2:  Tailored ANSI/EIA 748-A-1998 Guidelines
Attachment 3:  Solicitation Provisions and Contract Clauses
Attachment 4:  EVM Analysis Process
Attachment 5:  Sample Data Item Description (DID) Content
Attachment 6:  Instructions for DHHS Monthly EV Reporting
Attachment 7:  Corrective Action Plan Template
Attachment 8:  Glossary
Attachment 9:  List of Acronyms
Attachment 10:  Contract Performance Reports

List of Tables and Figures

Table 1. EVM Inputs and Descriptions
Table 2. EVM Process Entry Criteria
Table 3. Output Products and Descriptions
Table 4. EVM Process Exit Criteria
Table 5:  EVM Requirements Based on Tier
Table 6.  Contractor EVM Reporting Requirements
Figure 6-1. EVM Process Context Diagram
Figure 6-2. EVM Management Process
Figure 7-1  EVM Roles and Responsibilities
Figure 7-2  Pre-Award HHS EVM Activities
Figure 7-3  Post-Award HHS EVM Activities
Figure 7-4  IBR Phases

Purpose

This document establishes the Process and Procedures for Earned Value Management (EVM) within the Department of Health and Human Services (HHS).  This HHS EVM Process and Procedures (EVMPP) explains how HHS IT Investment Managers are to receive, organize, analyze, and report cost, schedule, and performance of their investments in accordance with the HHS EVM Policy and HHS CPIC Policy.  Additional HHS policies, procedures, methodologies, training, and project management best practices are used in conjunction with the EVMPP for the effective planning and management of projects.

Background   

As required by the Office of Management and Budget (OMB) Circular A-11 Part 7, Section 300, HHS investments will use EVM to monitor their cost, schedule, and performance.  The HHS Office of the Chief Information Officer (OCIO) is ensuring that all investments use an appropriate level of EVM as a management tool.

EVM provides Government investment managers and contractors with accurate data from which to make responsible management decisions.  EVM minimizes risk by effectively integrating the investment scope of work with cost, schedule, and performance elements for optimum project planning and control.  Earned Value Management provides a quantitative measure of project management progress as measured against a performance baseline established from a project’s work breakdown structure and project plan.  EVM methodology was originally utilized by DOD to manage large developmental projects.  Earned value (EV) data is a critical component of the Control phase of the Capital Planning and Investment Control (CPIC) process, because it provides investment managers with the cost, schedule, and performance data necessary to ensure that HHS investments are delivered on time and perform within budget and scope.

As of February 2005, the CPIC process was augmented to incorporate monthly EVM reporting for Development, Modernization, and Enhancement (DME) IT investments.1  Also, an OMB-approved three-tiered approach for EVM was instituted by HHS to incorporate stronger EVM application in project management processes.  Also, in June 2005, guidelines were introduced that called for an integrated project team approach in which the Operating Division (OPDIV) Chief Information Officer (CIO) and Head of Contracting Activity (HCA) would work in partnership with cognizant project managers to address fully the EVM requirements in applicable project and acquisition plans.2  In addition, a requirement was put in place for HHS solicitations and resulting contracts issued on or after October 1, 2005, in support of Tier 1, Tier 2, or Tier 3 IT investments, to include all EVM requirements appropriate to the specific Tier. 

Scope  

The EVMPP applies to the Office of the Secretary of Health and Human Services (OS), including all Staff Divisions (STAFFDIVs), the Office of the Inspector General, and the Operating Divisions (OPDIVs).  The EVMPP applies to all HHS IT investments, whether owned and operated by HHS, or operated on behalf of HHS.

The EVMPP applies to all HHS IT investments with the exception of those that are funded by direct grants to states or other external entities or associated with the basic claims processing costs incurred by contractors in the course of performing Medicare operations. 

Within the EVMPP, the term OPDIV shall be read to include the Office of the Secretary, including all STAFFDIVs, and the Office of the Inspector General unless otherwise noted.

OPDIVs shall use the EVMPP or may create a more restrictive OPDIV-specific process and procedures, but not one that is less restrictive or less comprehensive.  The EVMPP shall be applied in accordance with the HHS EVM Policy and the HHS CPIC Policy and HHS CPIC Procedures.

HHS EVM Tier Structure 

In order to provide HHS IT Investment Managers with accurate data to support responsible management decisions, it is HHS policy to apply “varying levels of EVM rigor, depending on the size and complexity of the IT investment,”3 as follows:

  • Tier 1:  IT investments that have current-year DME funding equal to or greater than $10 million.  Those investments must apply EVM in full compliance with American National Standards Institute-Electronic Industries Alliance (ANSI/EIA) Standard 748-A-1998 in any investments supporting the DME effort.  Attachment 1 lists the Standard’s 32 criteria.
  • Tier 2:  IT investments that have current-year DME funding equal to or greater than $1 million and less than $10 million.  Those investments must apply EVM principles for tracking investment cost, schedule, and performance, but need only comply with a subset of ANSI-EIA Standard 748-A-1998 criteria in any investments supporting the DME effort.  Attachment 2 lists this subset of ANSI-EIA Standard 748-A-1998 criteria.
  • Tier 3:  IT investments that have current-year DME funding of less than $1 million.  Those investments must apply EVM principles for tracking investment cost, schedule, and performance, but are not required to meet ANSI-EIA Standard 748-A-1998 criteria.  The appropriate EVM approach for each Tier 3 investment will be determined by the dollar amount and complexity of the affected investment.

The IT Investment Manager shall ensure that EVM is integrated into standard investment and project management operations.

Roles

HHS CIO 

The HHS CIO chairs the HHS ITIRB and the HHS CIO Council and is responsible for establishing HHS EVM policies, procedures, and processes.  The HHS CIO is responsible for oversight of the development, implementation and management of the HHS EVM policy and all EVM-related processes and guidance.  The Office of the CIO will assist in the coordination, development, review, and approval of HHS training materials as well as facilitation of training related to the use of EVM by project personnel.

HHS ITIRB and OPDIV ITIRBs 

The HHS ITIRB is responsible for approving new and revised IT investment Performance Measurement Baselines (PMBs) from a financial management perspective and in relation to the HHS IT investment portfolio.  For investments that meet the Department threshold for review, IT Investment Managers shall submit the EVM PMB and any changes to the PMB to the HHS ITIRB for review and approval.  For investments that do not meet the Departmental threshold for review, IT Investment Managers shall submit the EVM PMB and any changes to the PMB to the OPDIV ITIRB for review and approval.  Submissions shall address the rationale and driving factors leading to the new investment EVM PMB or any changed PMB.  Upon HHS ITIRB approval, the ITIRB shall forward new or revised PMBs to OMB for approval. Any new investment EVM PMB or PMB changes approved by the OPDIV ITIRB will be forwarded to the Department, as part of the CPIC process, for final approval.

HHS CIO Council 

The HHS CIO Council is responsible for approving new and revised IT investment baselines with respect to technical and managerial soundness and for providing technical recommendations to the ITIRB.

The HHS Capital Planning and Investment Control Officer

The HHS Capital Planning and Investment Control Officer ensures that the appropriate rigor for EVM is fully integrated into the CPIC process, and that the underlying investments accurately capture the necessary EVM data.  The HHS Capital Planning and Investment Control Officer ensures that HHS and OPDIV EVM policies meet OMB and any other legal or regulatory requirements on behalf of the HHS CIO.  The HHS Capital Planning and Investment Control Officer works in conjunction with the HHS CIO, HHS Chief Enterprise Architect, OPDIV CIOs and OPDIV CPIC Managers to ensure that required EVM processes are implemented for IT development projects and programs, that the EVM information is used effectively in HHS and OPDIV CPIC processes, and that EVM results and reports are provided to OMB in an appropriate and timely manner.

OPDIV CIO

The OPDIV CIO develops and implements OPDIV-wide policy and procedures for EVM in accordance with the HHS EVM  Policy and the HHS EVM Procedures and Processes document.  The OPDIV CIO also serves as a member of the HHS CIO Council and is responsible for ensuring the effective implementation of EVM policy, procedures, and processes within the OPDIV.  For IT investments supporting Tier 1 DME efforts, each OPDIV CIO and Head of Contracting Activity (HCA) are jointly responsible for participating in the conduct of Integrated Baseline Reviews (IBRs)4

Head of Contracting Activity

The Head of Contracting Activity, in coordination with the CIO is responsible for defining requirements for inclusion of EVM in all IT development contracts.  For IT investments supporting Tier 1 DME efforts, each OPDIV CIO and HCA is jointly responsible for participating in the conduct of IBRs.5 

The OPDIV CPIC Manager

The OPDIV CPIC Manager works with the OPDIV IT Investment Managers, the OPDIV CIO and the HHS Capital Planning and Investment Control Officer to ensure that the required EVM processes are developed, implemented and executed for IT development investments at the OPDIV, that the EVM information is used effectively in the OPDIV CPIC process, and that the EVM results and reports are provided to HHS to forward to OMB in an appropriate and timely manner.

IT Investment Contracting Officer

The IT Investment Contracting Officer (CO) shall ensure that the investment’s contract includes all the deliverables necessary for EV reporting. 

The CO is responsible for ensuring that all FAR references that apply to EV reporting are included in the investment’s contract, as well as FAR references that directly affect the technical content of the work program.  The CO is also responsible for ensuring that all contract deliverables (e.g., Integrated Master Schedule, Contract Performance Reports) have been delivered by the contractor on time and that they are in compliance with the contract’s requirements.

Contracting Officer’s Technical Representative (COTR)

The COTR is responsible for ensuring that EVM requirements are met for the contract.  The COTR and the IT investment Manager may be the same person for some investments.

IT Investment Manager   

The IT Investment Manager is responsible for the overall success of the project and all funding and scheduling issues, and acts as the Government’s point of contact with the contractor’s project management team.  To fulfill these responsibilities, the IT Investment Manager will:  in conjunction with the cognizant Contracting Officer, work directly with the contractor’s project management team to ensure that the contractor incorporates EVM into its management practices.
 
The IT Investment Manager establishes appropriate cost, schedule, and performance baselines, collects and analyzes EV data regarding performance against those baselines, and prepares corrective action plans or re-baseline proposals, as necessary, when cost, schedule, or performance exceeds acceptable tolerances.  It is the IT Investment Manager’s responsibility to resolve any significant reporting and/or system problems encountered with a contractor’s EVM. 

The IT Investment Manager is also responsible for conducting IBRs.  In preparation for an IBR, in accordance with the Earned Value Management Implementation Guide (EVMIG) (see Section 8.5-2), the IT Investment Manager will provide training for the IBR team members. The IT Investment Manager will lead the IBR within 180 days of award or a major re-baseline of the contract.

The IT Investment Manager also ensures investment project team members are adequately trained in EVM concepts and implementation.  When necessary, the IT Investment Manager consults the HHS OCIO for EVM training requirements and availability.

The IT Investment Manager ensures all monthly and quarterly EVM submissions are accurate and timely.  These submissions are also rolled into HHS OMB Exhibit 300 submissions, therefore, it is critically important that the IT Investment Manager provide data that is consistent with all other Department reports.

When an EVM review or certification is required, the IT Investment Manager is responsible for coordinating the certification of the contractor’s Earned Value Management System (EVMS).  The IT Investment Manager may be required to utilize a certifying authority.

Investment Team Subject Matter Experts

HHS IT investment Project Team Subject Matter Experts (SMEs) provide core project management activities throughout the life cycle of the project.  These activities facilitate the effective use of EVM as a project management tool.  Investment team SMEs ensure that technical metrics chosen for EV recognition are applicable for the task and applied correctly.  SMEs also review the Variance Analysis Report Narratives to determine whether the contractor’s variance mitigation strategies are viable.  Investment team SMEs also analyze EV data for financial performance, assessing efficiency and performance by extracting the necessary data from delivered EV reports.  SMEs track the funding levels and ensure the IT Investment Manager is aware of any shortfalls or other funding risks.  SMEs work to ensure that estimated budget dollars to remedy variance issues are sufficient and available. A SME may serve as the Control Account Manager for the investment.   

Process

This process identifies and defines the responsibilities of the HHS IT investment stakeholders in the EVM process. Additionally, it establishes the EVM Process, including its inputs and outputs, and their governing controls and methodologies.

Inputs and Entry Criteria

Inputs

Five inputs that contribute to the EVM process are shown in Table 1.  These inputs serve as the basis for implementing HHS EVM.  They also cover the entire scope of EVM to include the following:  Organization; Planning, Scheduling, and Budgeting; Accounting; Analysis and Management Reports; and Revision.

Table 1 identifies the information requirements necessary to develop the products listed in Out­puts and Exit Criteria. These inputs may depend on other activities associated with the life­cycle process or other procedures or other tasks.  Certain inputs apply only to specific EVM Tiers.

 Table 1. EVM Inputs and Descriptions


Input

Description

Schedule Management Plan

The Schedule Management Plan defines scope, purpose, and policy; participant roles and responsibilities; objectives; processes and procedures; organizational responsibilities and relationships; tools; reporting requirements; and related documents. It guides the overall implementation of schedule development and management over time.

Work Breakdown Structure (WBS) Maintenance Process

This document discusses the construction, review, and modification of the HHS Investment WBS. It identifies a mutually agreed to program scope that constitutes the Performance Measurement Baseline (PMB) and supports EVM. This document formal­izes the activities, products, and staff positions required for this process. It defines the related processes and procedures, roles and responsibilities, entry criteria, inputs, steps, and exit criteria. It also contains context and process diagrams.

EVM Plan

This document discusses the practice of EVM as it will be implemented for the HHS Investment. It comprises applicability, techniques, methods, Integrated Baseline Reviews (IBRs), reporting, process flow, and the specific steps contributing to successful EVM.

IBR Process Guide

An IBR provides HHS and the contractor an opportunity to review the PMB and come to an agreement that the PMB accurately reflects the scope of the work to be performed, the appropriateness of its schedule, the appropriateness of the assigned recognition methods, and the investment’s key milestones.  This document discusses how to conduct an IBR and comprises the scope, triggering actions, preparation, execution, and conclusion. It also describes the output of an IBR, the baselining of an investment’s schedule, and the IBR’s basis as an EVM measure­ment input.

WBS/
Organizational Breakdown Structure (OBS) Dictionary

This document explains and illustrates the HHS IT investment office work elements. It associates the responsibility for each element to the appropriate Government lead and contractor entity. It is not intended to bind contractors to perform the work described, but is intended to show logical assignment based on the particular competencies and expertise provided by each contractor. Performance of the work is dependent on execution of appropriate contractual vehicles.

Entry Criteria

This table, along with the context and process diagrams, identifies logical flow and when the process can begin. The workflow/process diagrams are to be used to identify pre­requisite tasks. Before beginning the process, check that each of the listed criteria has been met.

Table 2. EVM Process Entry Criteria


v

Entry Criteria

 

Personnel involved with implementing EVM have adequate training and experience necessary to integrate WBS, OBS, Schedule, and Cost information.

 

Personnel involved with implementing EVM have adequate training and experience necessary to conduct Integrated Baseline Reviews.

 

Personnel involved with implementing EVM have adequate training and experience necessary to analyze and report out accurate EV performance.

Context and Process Diagram s 

Context and Process Diagram
Figure 6-1. EVM Process Context Diagram
`
Figure 6-2. EVM Process

Process Steps and Responsibilities

The EVM process is comprised of five functional components that are discussed below.


Step

Functional Component

Person Responsible

1

Organization

HHS IT Investment Manager

The Organization component implements the first set of five criteria that comprise EVM implementation.  Collec­tively, these promulgate the WBS, OBS, Control/Cost Account Plans, Indirect Costs, and the associated integration required to monitor project performance and estimate costs at completion.

Step

Functional Component

Person Responsible

2

Planning, Scheduling, and Budgeting

HCA, OPDIV CPIC Manager, and IT Investment Manager

The Planning, Scheduling, and Budgeting component implements the second set of 10 criteria that comprise EVM implementation.  Collec­tively, these promulgate the project schedule, milestones, budgets, work packages, EV measure­ment, overhead budgets, management reserves, undistributed budgets, and overall allocation reso­lutions necessary to account for and budget all work and to cover all expenses in the execution of the project.

Step

Functional Component

Person Responsible

3

Accounting

OPDIV CPIC Manager and IT Investment Manager

The Accounting component implements the third set of six criteria that comprise EVM implementation.  Col­lec­tively, these promulgate the recording of direct and indirect costs, unit or lot costs, and their sum­marization and accumulation over time.

Step

Functional Component

Person Responsible

4

Analysis and Management Reports

IT Investment Manager

The Analysis and Management Reports component implements the fourth set of six criteria that comprise EVM implementation.  Col­lectively, these promulgate actual performance against the project baseline, and the actual cost based on the project baseline. These also promulgate variances, their causes, corrective actions, and associated revised estimates at completion.

Step

Functional Component

Person Responsible

5

Revision and Data Maintenance

IT Investment Manager

The Revision component implements the final set of five criteria that comprise EVM implementation.  Collectively, these promulgate the incorporation of authorized changes to the baseline, reconcil­ing budgets, controlling changes, minimizing changes, and documenting changes.

Outputs and Exit Criteria 

Outputs

These products are produced as outputs from the activities of this process. These outputs may feed subsequent processes, procedures, activities, or tasks.  Certain outputs apply only to specific EVM Tiers.

Table 3. Output Products and Descriptions


Product

Description

Baselined Integrated Master Schedule (IMS)

The IMS is developed for the HHS IT Investment so that tasks and mile­stones are clearly defined.  It is updated regularly to identify IT investment elements  that are behind as well as those ahead of schedule.  The IMS maps directly to the CWBS enabling the investment management team a single point of reference for all activities.

IBR

The IBR and the resulting report ensure that the baseline captures the entire technical scope of work, that it is consistent with contract schedule requirements, and that the appropriate mix and level of resources have been assigned to the program.  The IBR is performed to enhance the HHS IT Investment Manager’s and the project team’s confidence in the contractor’s cost and schedule management and baseline formulation.

Periodic Earned Value Reviews

Earned Value reviews examine the Budgeted Cost of Work Scheduled; the PMB upon which all program level analyses are performed; Budgeted Cost of Work Performed (the numerical value of how well the contract is performing against budgets); and Actual Cost of Work Performed (the actual cost from accounting for that investment by WBS element).

Periodic Earned Value Reports
(such as CPRs)

The Contract Performance Report (CPR) presents the cost and schedule data for the current period as well as in a cumulative format.  Formats 1 and 5 provide the HHS IT Investment Manager the insight needed to manage the investment.  Format 1 is a WBS-oriented contract report.  Costs are organized by WBS element at a level pre-determined by the HHS IT Investment team.  Format 5, Variance Narrative, is a problem analysis and variance-oriented report. It provides explanations for cost and schedule variances that have exceeded thresholds. It provides a written explanation as to why the variance occurred, as well as written descriptions on how the contractor plans to resolve the cause of the variance.

Exit Criteria

Table 4, along with the context and process diagrams, identifies logical flow and when the process can be considered complete.  The workflow/process diagram is used to identify subsequent processes, procedures or tasks to be performed. Before this process can be declared complete, the following exit criteria must be met.

 Table 4. EVM Process Exit Criteria


v

Exit Criteria

 

Functioning EVM using and influencing the maintenance of program WBS, OBS, and Schedules.

 

Periodic assessments of IT investment status including publication to the Portfolio Management tool and presentation at appropriate management and IT governance reviews.

 

Annual inputs to HHS OCIO’s Exhibit 300 submission.

Procedures

The Department and the contractor each have critical roles to play in EVM in support of the process described above.  Figure 7-1 shows the major activities and roles in performing EVM.  These activities are performed either before the contract is awarded (pre-award) or after the contract is executed (post-award) and are discussed in the sections that follow.
 EVM Roles and Responsibilities
Figure 7-1   EVM Roles and Responsibilities

Pre-Award Activities

Historically, problems identified during EVM implementation are directly related to the failure to establish an adequate EVM requirement definition in the solicitation.  In the pre-award phase, the IT Investment Manager works to ensure that the Request for Proposal (RFP) and the awarded contract contain the appropriate clauses, metrics, and reporting requirements for the procurement.  Pre-award activities include preparing a SOW, preparing the Contract Data Requirements List (CDRL) and Data Item Descriptions (DIDs), negotiating technical requirements, negotiating EVM requirements, and finalizing the Contract WBS (CWBS).  Figure 7-2 shows HHS pre-award EVM activities.
Figure 7-2 shows HHS pre-award EVM activities
 Figure 7-2   Pre-Award HHS EVM Activities

Negotiate EVM Requirements

This section outlines the EVM requirements that must be considered during the contract pre-award phase. 

Contract Reporting Requirements

The Contract Performance Report (CPR) is used by the contractor and provides the IT Investment Manager with monthly cost, schedule, and performance data.  The contract DID provides contractor guidance for the preparation and submission of the CPR, reporting frequency, distribution, and specific investment tailoring instructions.  Elements of a contract DID for the CPR with formats 1-5 (for Tier 1 contracts) is provided in Attachment 5.  Guidelines in the tailoring of the CPR are provided in the EVMIG (section 8.5-2).

Schedule Requirements

To achieve a truly integrated management control system, the IT Investment Manager ensures that the solicitation requirements explicitly define logical network schedule requirements. Elements of a contract DID for a project schedule are provided in Attachment 5.

EVM Links to Risk Management

Throughout the execution of the contract, the IT Investment Manager ensures that the results of all analysis based on EVM are linked to the Risk Management Plan of the investment (as applicable). Any cost and/or schedule risks being managed by the IT Investment Manger should rely on the results of EVM analysis to track, manage, and mitigate the risks.

Negotiate Technical Requirements

The investment team works to ensure all technical requirements for the investment are adequately addressed by the contractor.  When technical performance requirements are used, appropriate and relevant metrics to be measured are defined in the solicitation.  Elements of a contract DID for Technical Performance Reports are provided in Attachment 5.

Prepare Statement of Work (SOW)

The IT Investment Manager documents the effort’s technical and management scope in the SOW.  The SOW contains requirements for the contractor to perform the contract technical effort following tier-appropriate ANSI/EIA 748-98 EVM guidelines correlating cost and schedule performance with technical progress.  The SOW also includes requirements for subcontractor EVM reporting.  In addition, the SOW includes a paragraph on Integrated Investment Management reporting that describes and calls out the data items (CPR, IMS, and Contract WBS (CWBS) and Dictionary).  The SOW calls for progress and problems to be presented and discussed in periodic investment management reviews.  Technical issues should be covered in terms of performance goals, exit criteria, schedule progress, risk, and cost impact.  Finally, the SOW contains and describes the requirement for the IBR process to be initiated within 180 days of contract award and for incremental IBRs as needed throughout the life of the contract for major contract changes or re-planning.6

To ensure that all OMB-mandated EVM requirements are integrated into the investment’s Statement of Work (SOW) and into the resulting contract for the investment, the EVM reporting requirements listed in Attachment 3 of this document are incorporated in all IT contracts and solicitations for Tier 1 IT investments.  These requirements were adapted from the proposed Federal Acquisition Regulations (FAR) modifications on EVMSs7.
An IT investment’s Tier designation dictates the level of that investment’s required EVM reporting.  When EVM reporting is needed, the requirement is integrated into the investment’s SOW and the resulting contract. 

Table 5 lists the contract EVM requirements based on Tier.

Table 5:  EVM Requirements Based on Tier

EVM Requirements

Tier 1

Tier 2

Tier 3

Contract Performance Report

R

R

O

Integrated Master Schedule

R

T

T

Integrated Baseline Reviews

R

O

O

EVMS Standard Compliance

R

R

O

EVM System Certification

R

O

O

                R = Required, T = Tailored (requirement may be tailored by investment), O = Optional
The minimum EVM reporting requirement is monthly reporting.  Contracting officers require contractors to submit the appropriate EVM monthly reports. 

Table 6 lists contractor EVM reporting requirements.

Contracting Officers and Investment managers may implement more frequent reporting requirements as appropriate to the size and complexity of the investment. 

When an EVMS is required, the Government will conduct an Integrated Baseline Review (IBR).  The purpose of the IBR is to verify the technical content and realism of the related performance budgets, resources, and schedules.  It should provide a mutual understanding of the inherent risks in the contractors’ performance plans and the underlying management control systems, and it should formulate a plan to handle these risks.

Table 6.  Contractor EVM Reporting Requirements

EVM Reporting Requirements

Tier 1

Tier 2

Tier 38

CPR Format 1 – WBS

R

R

T

CPR Format 2 – Organizational Categories

R

O

O

CPR Format 3 – Baseline

R

O

O

CPR Format 4 – Staffing

R

O

O

CPR Format 5 – Explanation and Problem Analyses

R

R

T

Contract Funds Status Report

R

R

O

R = Required, T = Tailored (requirement may be tailored by investment), O = Optional
For internal HHS projects with no contractor involvement, the IT Investment Manager ensures all Tier-appropriate EV requirements, as defined by the EVM Policy, are met by the performing organization.  The IT Investment manager would therefore ensure that those requirements that would be met by the contractor are met for those internal HHS investments with no contractor involvement.

Finalize Contract Work Breakdown Structure (WBS)

The IT Investment Manager ensures reporting requirements for the project are consistent with the contract WBS.  That is, the reporting of progress, performance, and engineering evaluations as well as financial data and variance analysis, are based on the contract WBS.  Elements of a contract DID for the WBS and WBS dictionary is provided as Attachment 5.

Prepare CDRL and DIDs

In order to ensure that the contractor performs the necessary EVM tasks, all EVM products are specified in the CDRL and DIDs.  Elements of contract DIDs, provided in Attachment 5 of this procedure, include suggested wording that may be augmented or tailored to meet individual investment needs.  The IT Investment Manager and CO work together to incorporate all necessary EVM requirements in the contract.  HHS EVM contract clauses are shown in Attachment 3.

Post-Award Activities

Post-award EVM activities monitor the IT investment’s performance to ensure efficient use of Government resources.  The post-award EVM activities are performed in support of the CPIC Control phase.  Post-award EVM activities include conducting IBRs (including document reviews), conducting periodic EVM reviews, evaluating technical requirements, analyzing EVM reports, and submitting relevant CPIC data.  Figure 7-3 shows HHS post-award EVM activities.
Figure 7-3 shows HHS post-award EVM activities
Figure 7-3  Post-Award HHS EVM Activities

Conduct IBR

The Contracting Officer establishes a contract requirement for IBRs for Tier 1 investments (and some Tier 2 investments, as determined by the HHS or OPDIV CIO).  The IT Investment Manager for Tier 1 investments performs an IBR for each investment.  An IBR provides HHS and the contractor an opportunity to review the PMB and come to an agreement that the PMB accurately reflects the scope of the work to be performed, the appropriateness of its schedule, the appropriateness of the assigned EV recognition methods, and the investment’s key milestones.
The IT Investment Manager ensures that training is available to each team member prior to the review.  HHS has HHS-specific EVM training available that consists of the basics of EVM and a workshop held just prior to the IBR, covering the mechanics of the review and examples of specific items to be reviewed.  In addition, a system walk-through which may be conducted jointly by the contractor and the IT Investment Manager, is performed prior to the IBR.
To provide a timely mutual understanding of risks inherent in the investment’s performance plans and underlying management control systems, IBRs are documented in the project plan and conducted no later than 180 days after contract award.

An IBR allows the HHS IT Investment Manager to achieve several goals:
Ensure that the contractor has fully understood the scope of work and that this fact is documented in the contractor’s Control Account Plans and their underlying Work Package plans
Ensure that the contractor has developed a logical sequence of planned effort
Ensure that the Control Accounts are budgeted adequately
Understand the EV methods chosen and assigned to work packages and that the methods are primarily objective and appropriate for the work planned
Evaluate the technical requirements with respect to the earned value recognition methodology tied to the requirement to ensure that the recognition method is best suited for the technical metric 
Develop a sense of ownership with the contractor concerning the PMB

The IBR can be a lengthy process. The preliminary steps require numerous document reviews and formulations of questions based on the reviews. After the reviews are completed, the IBR is conducted at the contractor’s site and includes presentations by the contractor’s Program Managers and one-on-one interviews between Government technical representatives and the contractor’s Control Account Managers (CAMs).  Thorough guidance in the IBR process is provided in the EVMIG, section 8.5-2.  Figure 7-4 shows the three major phases of the IBR.

Figure 7-4 shows the three major phases of the IBR
  Figure 7-4   IBR Phases

IBR Document Review Phase

The first phase of the IBR is the document review.  A viable EVM implementation requires excellent documentation that provides proof that the contractor fully understands the technical scope of the work to be performed. The following documents are closely reviewed prior to meeting with the contractor’s team. Also included below are issues that the IT Investment Manager focuses on during the IBR.  The document review must be completed prior to the next phase of an IBR, the Interview Phase.

Contract Work Breakdown Structure

The CWBS documents the work to be performed in a logical WBS format:
Does the CWBS logically reflect the work to be achieved?
Is the CWBS product oriented?
Does the CWBS include all of the work that is within scope of the contract?
Careful comparisons between the SOW and the CWBS help to successfully ascertain that the CWBS is a representative document.

CWBS Dictionary

The CWBS Dictionary is a document that maps the requirements stated in the SOW to the CWBS.
Has the contractor effectively accounted for the deliverables and technical challenges listed in the SOW in the CWBS?

Responsibility Assignment Matrix

The Responsibility Assignment Matrix (RAM) documents the responsibilities of the CAMs. It maps the WBS items that the CAM is responsible for, the department the CAM belongs to, and the budget that the CAM is responsible for. When evaluating the RAM, the Government IBR team deter­mines if the functional organization is mapped correctly and logically to the CWBS and that it accurately reflects the costs.

Investment Schedules

The IMS and its accompanying detailed schedules are analyzed to determine that the work is logically and sequentially identified and documented. The Government IBR team reviews the schedules, ascertains their accuracy, and maps them to the CWBS and to the Control Account Plans, defined below.  The Government IBR team also ensures that the information between the IMS and its detailed schedules can be traced horizontally and vertically (e.g., a detail of a particular task has the same duration on both the detailed schedule and the IMS).

Control Account Plans

Control Account Plans (CAPs) document the underlying work packages and provide the CAM with a source to evaluate his or her BCWS, ACWP, and BCWP (Earned Value) of each for the CAM’s Control Accounts. The plans are not static, are updated monthly to reflect progress, and provide the CAM all the information needed to effectively manage the Control Account’s (CA’s) budget. The Government IBR team confirms that the correct milestones are identified and documented, that the EV method is logical for the work to be performed, and the information included in each CAP provides the right level of data needed for the CAM to effectively manage the CA.

Work Authorization Document

The Work Authorization Document (WAD) is a document produced by the contractor and used internally.  It is not a deliverable item.  Included in the WAD are details concerning the task work to be performed, a detailed list of task outputs, CDRL items, and other task-specific deliverables.  It also includes the associated budget for the task and authorizing signatures that confirm that the staff member is authorized to work on the task. It should not include the number of hours that may be charged.  The Government IBR team evaluates the WAD to ensure that the work docu­mented is truly representative of the work to be performed, that the proper signatures are present, and that the deliverables listed are complete and accurate.

IBR Interview Phase

After the documents have been reviewed and analyzed, the Government IBR team meets with the contractor at its facility to conduct one-on-one interviews and to ascertain the adequacy of the contractor’s planning.  This part of the IBR is not confrontational.  Rather, it is designed to be informative and a step for both the Government and the contractor to agree on the PMB and the scope of the contract.

Investment Management Briefings

At the start of the contractor visit, the contractor’s investment management team presents the PMB and addresses all technical questions posed by the Government’s representatives.  This is an opportunity for the contractor to address any major findings discovered by the Government team during the Document Review phase and provide explanations or problem resolutions.  An overall assessment of the investment’s tasks, technical challenges, risk areas, and staffing challenges is presented.  At the completion of the initial briefing, the Government and the contractor teams break off into smaller groups for the CAM interviews.

CAM Interviews

The CAM assigned to the technical CA should be experienced for the technical requirements of the task. The Government IBR team member is comprised of experts on the task.  The two parties will meet and perform the following actions:
Review the CAP: The Government representative and the contractor’s CAM review the budget data, the EV methods chosen, the underlying work packages, and the milestones that are integrated into the CAP.  If the Government representative has issues from reviewing the documents, the one-on-one interview is the forum to resolve any discrepancies.  Risk areas are identified, and the mitigation strategies are discussed.  The CAP’s relation to the investment’s schedule is evaluated and, if necessary, adjusted to better reflect the bilateral approach to the technical challenges.  Finally, the budget is evaluated, coupled with the staffing mix, and agreement is made that the budget is adequate, or that there should be adjustments to it.
Review the Detailed Schedule: Each CAP is based on a detailed schedule, which rolls up to the Integrated Master Schedule (IMS). The Government representative and the CAM will discuss any issues with the schedule that the Government representative has discovered, and the necessary adjustments will be discussed, and then integrated into the schedule. Any major changes must be through a mutual agreement of the parties. If one does not agree, it is noted as a shortcoming, and discussed during the daily exit brief.
Review the WAD: The WAD was reviewed during the document review. Any issues concerning the WAD’s contents are discussed at this time.
After completing the day’s activities, a daily exit brief is conducted with all parties.

IBR Conclusion Phase

After all interviews have been conducted and all issues that require change have been identified, the IBR draws to a close.  At this time, the Government IBR team briefs the contractor’s team on all findings, recommendations, and action items, and provides an overall assessment of the program baseline.  Both teams should have reached agreement that the PMB accurately reflects the work to be performed and that the contractor’s team truly has a firm grasp on the scope of the work.  If there are numerous issues that were not resolved, another IBR can be scheduled as necessary at the discretion of the Government.  This is necessary if the risks discovered during the IBR warrant such a follow-up.  Normally, if an undue number of risks are identified, they will be addressed each month during the progress meetings between the investment project team and the contractor.

Conduct Periodic EVM Reviews

The IT Investment Manager incorporates EVM reviews into regularly scheduled investment team meetings.  During these reviews, status is given against the PMB and new and existing variances and corrective action plans are discussed and incorporated into the project plan.  It is important the findings shared in EVM reviews are acted on quickly and used to make management decisions.  EVM review findings may be escalated to the HHS CIO and may be subject to Departmental review by the HHS ITIRB, if applicable, based on the EVM Policy and CPIC Policy established by HHS.
For investments that have a cost or schedule variance of +/-10% or more, Investment Managers are required to develop a Corrective Action Plan (see Attachment 7 for a sample Corrective Action Plan template).  Corrective Action Plans are documents that allow Investment Managers to define the strategy that will be employed to improve the performance of their investments.  The Corrective Action Plan will be attached within the investment’s portfolio management tool’s supplemental data and document repository.  The Corrective Action Plan, itself, is a template that Investment Managers can complete as necessary.  The template requires Investment Managers to provide a brief description of the strategies they will implement in order to correct existing problems; the specific, actionable tasks associated with each strategy, points of contact for each task and, start and end dates for executing them.  Investment Managers may be required to provide a status on the execution of Corrective Action Plans in future reviews.  As applicable, particularly for high priority investments, Corrective Action Plans may be requested as part of management and IT governance reviews.

Evaluate Technical Requirements

Periodic EVM reviews provide insight into the progress of the investment against its baseline.  The investment team uses the review as a forum to ensure the investment is achieving its requirements.  When necessary, technical considerations are included in action plans designed to bring technical investment performance in line with baseline objectives.

Analyze EVM Reports

Attachment 4 of this procedure describes the EVM analysis process.  It is intended to be used as a guide in the analysis of contractor cost performance data.  Each Investment Manager is encouraged to develop his or her own process of performing analysis that meets the individual needs of the project.  The HHS IT investment team ensures that the contractor reports CPR data in a manner that reflects the WBS and is consistent with the actual contract status.

Assessment Period

Each IT investment provides an EVM report to the HHS OCIO, reporting performance through the end of a given month.  These reports are submitted by the 12th of the following month and are analyzed prior to the end of the report month.  The periodicity ensures that the data analysis does not lag behind actual investment performance by more than a month.  The HHS OCIO has adopted this approach to ensure that EVM reporting provides HHS/OPDIV management an opportunity to immediately identify and implement corrective actions to bring an investment’s performance within variance thresholds, if it exceeds acceptable performance thresholds.

OMB Scoring Criteria

The following scoring criteria are from OMB Circular A-11, Section 300.  They detail the
qualities that OMB looks for in an organization to determine its Department-level score in the area of Performance Based Management:

Performance Based Management System (PBMS) (Part I, Section I.H.1)

5    Agency will use, or uses an Earned Value Management System (EVMS) that meets ANSI/EIA Standard 748 and investment is earning the value as planned for costs, schedule, and performance goals.
4    Agency uses the required EVMS and is within the variance levels for two of the three criteria.  Work is needed on the third issue.
3    Agency uses the required EVMS but the process within the agency is either very new, not fully implemented, or there are weaknesses in this investment's EVMS information.
2    Agency seems to re-baseline rather than report variances.
1    There is no evidence of PB.

HHS President’s Management Agenda (PMA) Scorecard

The investment data that is assessed during the quarterly EVM data submission process will also be used to determine the Department scores on the HHS PMA Scorecard.  While the EVM Data Submission process is focused on the performance of IT investments, the PMA Scorecard assesses the performance of the Department’s IT investment portfolios.  Therefore, the scorecard will reflect the performance of all affected IT investments within the Major IT Investment portfolio each quarter.

Current EVM Data Collection Requirement

The HHS EVM Policy requires contractors to provide IT Investment Managers with monthly EVM data documenting the cost, schedule, and performance of their investments.  It is the responsibility of the IT Investment Managers to review the reports provided on a monthly basis and update the investment’s actual cost and schedule.  The IT Investment Manager shall also provide their management with the results of their monthly review.  If a Corrective Action Plan is required, Investment Managers would submit the plan with the monthly EVM report.

On February 1, 2005, the Memorandum titled, “Monthly Reporting of Earned Value Cost and Schedule Variances,” was forwarded to all OPDIVs.  This memorandum outlines the monthly earned value reporting requirements for that applies to all IT investments with FY 2006 DME funding equal to or greater than $500,000.  These reports are required to adequately inform OMB on HHS cost/schedule/performance adherence of IT investments, as required by Memorandum M-04-24 “Expanded Electronic Government (E-Gov) President’s Management Agenda (PMA) Scorecard Cost, Schedule, and Performance Standard for Success,” and to demonstrate progress on the HHS Earned Value Roadmap implementation.  The memorandum originally established the requirement for Tier 1 and Tier 2 investments.  In June 2005, the Department began requiring EVM reports for those Tier 3 investments that have FY 2006 DME equal to or greater than $500,000.

Monthly Data Calls

The monthly reporting of EV cost and schedule variances provides the foundation for the submission of quarterly EVM data to OMB.  As an integral part of the investment management process, HHS and OPDIV IT CPIC Managers provide EV metrics to the HHS OCIO for investments according to established Tier requirements. The HHS OCIO has provided specific guidance and requirements for data submission.  The EVM Data Submission Template and the Corrective Action Plan template (see Attachments 6 and 7) are used by the IT Investment Managers when submitting monthly EVM data for investments.  In addition to monthly data calls, the HHS OCIO must also produce quarterly reports to OMB to report EVM status  for  major investment, specifically providing the percentage of HHS Major IT investments that have met the established variance thresholds for the reporting period.

Completing the HHS EVM Data Submission Spreadsheet

To capture performance information for all Major IT Investments, the EVM Data Submission Template (a Microsoft Excel template) has been designed to ensure consistency in the collection of HHS’ data.  This template corresponds to Tables I.H.4.A – I.H.4.F, Section I.H., Project (Investment) and Funding Plan, Section 300 of OMB Circular A-11.  Additional modifications were made to allow for more accurate calculation and analysis of the data.  Future modifications to the template may occur to further ensure the required information is collected to support future progress in the maturity of EVM practices applied at HHS.

The IT Investment Manager completes all sections of the template for each of their Tier 1, 2, and 3 investments having current year DME funding of $500,000 or more, regardless of whether they are funded directly or indirectly.

The contents of the EVM Data Submission Template are also subject to change in future reviews based on changing requirements from OMB and the HHS OCIO.

The HHS OCIO has established the following naming convention to facilitate the identification of the investment and the applicable reporting period.  The following structure applies:

< OPDIV > + < CPIC Investment Name > + EVM Report+ <Month> + <Year>

Example:
AHRQ Medical Expenditure Panel Survey (MEPS) EVM Report December 2005 

Note:  In the event the IT Investment Manager elects to provide data in an alternate format, the file name is still required to conform to the naming convention identified above.

The template contains the following individual worksheets: “EV Input” and “EV Summary”.  Each of these worksheets is designed to capture the most current performance and status information for the investment.  Procedures for entering data into the “EV INPUT”worksheet, are shown in Attachment 6.

Submitting the HHS EVM Data Submission Spreadsheet

All templates must be submitted to the HHS OCIO via e-mail for review and analysis by the 12th of the month.  OPDIC CPIC Managers or OPDIV EVM Program Managers should submit all of their OPDIV  EVM Data Submission Spreadsheets to the HHS OCIO.  Enterprise IT Investment Managers may submit their reports directly to the HHS OCIO.  Once the completed EVM Data Submission Templates have been received by the HHS OCIO, an e-mail confirmation to the OPDIV CPIC Manager or OPDIV EVM Program managers will be sent to provide notification of the receipt of the OPDIV or enterprise IT investment submission.  Any additional information and/or clarification required for finalization will be addressed in follow-up communication. 

Prior to the end of the month, a list of non-reporters is generated and an e-mail is sent to the OPDIV CPIC Manager or EVM Program Manager to inform them of those IT Investments, for which no monthly report was received. If no report is provided, this may generate a request for a  review of the investment, specifically the issue may be escalated to the HHS CIO and the investment may be subject to Departmental review by the HHS ITIRB, since the lack of an EVM report means that the HHS OCIO has not been provided appropriate EVM data to demonstrate that the investment is performing on-time and within budget and scope, as required by the HHS EVM Policy and HHS CPIC Policy.   

Analyzing the EVM Data Submission Templates

After IT Investments Managers submit the EVM Data Submission Templates, it is the responsibility of the HHS OCIO to perform an analysis on each investment by reviewing the templates submitted by the individual IT Investment Managers (through the OPDIV CPIC Manager or EVM Program Manager).  This analysis will identify any performance issues that may exist as well as provide a classification with respect to variance thresholds.  Current variance thresholds are color coded with “Red” exceeding the -10% Cost and/or Schedule variance threshold and “Yellow” exceeding the -5% Cost and/or Schedule variance threshold.

Under the HHS EVM Data folder, a directory structure has been established to facilitate the classification and tracking of HHS IT investments.  The naming conventions for subfolder/directories are structured as follows:

< 4 digit Year > + < 2 digit Month > + EVM Monthly Reporting + < Report Month >

Under each reporting folder, subordinate folders are established for the HHS enterprise-wide investments and each of the OPDIVS.

To obtain the best analysis of the investment’s use of earned value, WBS Task Elements and each account’s “Total Planned Cost (Budget At Completion - BAC)”, “Monthly Planned Cost (BCWS)”, and “Actual Cost of Work Performed (ACWP) are required for each WBS Task element.  The current version of the HHS EVM Data Submission Template uses Percent Complete as the sole EV recognition method.  The IT Investment Manager is required to provide an estimate of the percent completion for each of the WBS/Task elements identified.  Based on the spreadsheet entries, various calculations are performed and yield the investment’s “Budgeted Cost of Work Performed (BCWP)”.

The information provided by the IT Investment Manager on the EV Input tab and the computed BCWP provide the elements for the calculation of the elements shown on the EV Summary tab.  The EV Summary tab mirrors input from the EV Input tab for the following EV elements: 

  • WBS (Task) Element
  • BAC = total budget for all Development milestones based on the Performance Measurement Baseline.
  • ACWP = cumulative to date actual dollars for each month, all milestones
  • BCWS = cumulative to date cost of work scheduled (or work planned)
  • Percent (%) Complete = cumulative % complete for all milestones, for each month.
  • BCWP = cum to date earned value (% complete * total BCWS), for all milestones, each month

These elements provide the foundation for the computation of the following EV metrics:

Schedule Variance (SV) = (BCWP-BCWS)
Schedule Variance % (SV%) = (SV/BCWS) x 100%
Schedule Performance Index (SPI) = (BCWP/BCWS)
Cost Variance (CV) = (BCWP-ACWP)
Cost Variance %  (CV%) = (CV/BCWP) x 100%
Cost Performance Index (CPI) = (BCWP/ACWP)
Estimated Cost At Completion (EAC) = (BAC/CPI)
ETC Estimated Cost to Complete (ETC)= BAC-BCWP

Updating the Portfolio Management Tool (ProSight)

The final step in updating portfolio management data is populating the HHS Portfolio Management tool (ProSight).  The data submitted on the EVM Data Submission spreadsheets is used to calculate the summary level data needed for the Portfolio Management tool (ProSight).  Please refer to the HHS CPIC Policy and Procedures for additional details for this step.  The IT Investment Manager ensures that the data in ProSight accurately reflects project performance and is consistent with its EVM submissions.  Therefore, it will be necessary to update the Performance Measurement Baseline in the Business Case, and Project Plan documents in the PMT (such as the information provided in  Section I.H., Project (Investment) and Funding Plan, Section 300 of OMB Circular A-11) on a schedule established and directed by the HHS OCIO.  Until automated methods for updating the EVM data in the Portfolio Management Tool, based on the EVM data provided to meet EVM Policy, Procedure, and Process requirements, these updates would need to be manually entered into both tools.

Applicable Legislation, Policies, Standards, and Guidance

Legislation 

  1. Government Performance and Results Act of 1993.
  2. Federal Acquisition Streamlining Act of 1994.
  3. FAR 7.105.
  4. FAR Case 2004-019, Federal Acquisition Regulation Earned Value Management System (EVMS), Federal Register, Volume 70, Number 67, April 8, 2005.
  5. Clinger Cohen Act of 1996.

Policies 

  1. OMB Circular A-11 (Part 7, Planning Budgeting, Acquisition & Management of Capital Assets).
  2.  OMB Memorandum M-04-24 Expanded Electronic Government (E-Gov) Presidents Management Agenda (PMA) Scorecard Cost, Schedule and Performance Standard for Success, August 2004.
  3. OMB Memorandum M-05-23 Improving Information Technology (IT) Project Planning and Execution, August 2005.

Standards 

  1. American National Standards Institute/Electronic Industries Alliance (ANSI/EIA) Standard 748-A, Earned Value Management Standards, May 1998.
  2. Defense Contract Audit Agency, Earned Value Implementation Guide (DCAA Pamphlet 7641.47), Ft. Belvoir, VA, 1996.
  3. Department of Defense Earned Value Management Implementation Guide: http://www.acq.osd.mil/pm.
  4. National Defense Industrial Association (NDIA) Program Management Systems Committee Intent Guide for Earned Value Management Systems: http://www.ndia.org or http://www.acc.dau.mil.

Department Guidance 

  1. HHS Deputy Assistant Secretary for Grants and Acquisition Management Memorandum, OMB’s New Capital Asset Requirements, May 30, 2002.
  2. HHS Chief Information Officer and Director, Office of Acquisition Management & Policy Memorandum, Team Based Earned Value Approach, January 24, 2005.
  3. HHS Memorandum Monthly Reporting of Earned Value Cost and Schedule Variances, January 31, 2005.
  4. HHS Memorandum Team-Based Earned Value Management Guidelines, June 16, 2005.
  5. HHS Acquisition Regulation (HHSAR)

Other Guidance 

  1. Defense Contract Audit Agency, Earned Value Implementation Guide (DCAA Pamphlet 7641.47), Ft. Belvoir, VA, 1996.
  2. Department of Defense Earned Value Management Implementation Guide: http://www.acq.osd.mil/pm.
  3. National Defense Industrial Association (NDIA) Program Management Systems Committee Intent Guide for Earned Value Management Systems: http://www.ndia.org or http://www.acc.dau.mil.

Information and Assistance       

Direct questions, comments, suggestions, or requests for further information to the Office of the Chief Information Officer, (202) 690-6162.

Effective Date/Implementation 

The effective date of the EVMPP is the date the EVMPP is approved.

This EVMPP will not be implemented in any recognized bargaining unit until the union has been provided notice of the proposed changes and given an opportunity to fully exercise its representational rights.

The HHS process and procedures contained in this issuance shall be exercised in accordance with Public Law 93-638, the Indian Self-Determination and Education Assistance Act, as amended, and the Secretary's policy statement dated August 7, 1997, as amended, titled Department Policy on Consultation with American Indian/Alaska Native Tribes and Indian Organizations.”  It is HHS policy to consult with Indian people to the greatest practicable extent and to the extent permitted by law before taking actions that affect these Governments and people; to assess the impact of the Department's plans, projects, programs, and activities on tribal and other available resources; and to remove any procedural impediments to working directly with tribal Governments or Indian people.

Approved 

________________________________________________            __________________
Charles Havekost
HHS Chief Information Officer                                                              DATE

 Attachment 1:  ANSI/EIA 748-A-1998 Guidelines

The following data is extracted directly from the American National Standards Institute/Electronic Industries Alliance Standard 748-98, Earned Value Management Standards, May 1998.
Organization

1. Define the authorized work elements for the program. A work breakdown structure (WBS), tailored for effective internal management control, is commonly used in this process.

2. Identify the program organizational structure including the major subcontractors responsible for accomplishing the authorized work, and define the organizational elements in which work will be planned and controlled.

3. Provide for the integration of the company's planning, scheduling, budgeting, work authorization and cost accumulation processes with each other, and as appropriate, the program work breakdown structure and the program organizational structure.
 
4. Identify the company organization or function responsible for controlling overhead (indirect costs).

5. Provide for integration of the program work breakdown structure and the program organizational structure in a manner that permits cost and schedule performance measurement by elements of either or both structures as needed.
Planning, Scheduling and Budgeting

6. Schedule the authorized work in a manner which describes the sequence of work and identifies significant task interdependencies required to meet the requirements of the program.

7. Identify physical products, milestones, technical performance goals, or other indicators that will be used to measure progress.

8. Establish and maintain a time-phased budget baseline, at the control account level, against which program performance can be measured.  Initial budgets established for performance measurement will be based on either internal management goals or the external customer negotiated target cost including estimates for authorized but undefinitized work.  Budget for far-term efforts may be held in higher level accounts until an appropriate time for allocation at the control account level. On government contracts, if an over target baseline is used for performance measurement reporting purposes; prior notification must be provided to the customer.

9. Establish budgets for authorized work with identification of significant cost elements (labor, material, etc.) as needed for internal management and for control of subcontractors.

10. To the extent it is practicable to identify the authorized work in discrete work packages, establish budgets for this work in terms of dollars, hours, or other measurable units. Where the entire control account is not subdivided into work packages, identify the far term effort in larger planning packages for budget and scheduling purposes.

11. Provide that the sum of all work package budgets plus planning package budgets within a control account equals the control account budget.

12. Identify and control level of effort activity by time-phased budgets established for this purpose. Only that effort which is unmeasurable or for which measurement is impractical may be classified as level of effort.

13. Establish overhead budgets for each significant organizational component of the company for expenses which will become indirect costs. Reflect in the program budgets, at the appropriate level, the amounts in overhead pools that are planned to be allocated to the program as indirect costs.

14. Identify management reserves and undistributed budget.

15. Provide that the program target cost goal is reconciled with the sum of all internal program budgets and management reserves.
Accounting Considerations

16. Record direct costs in a manner consistent with the budgets in a formal system controlled by the general books of account.

17. When a work breakdown structure is used, summarize direct costs from control accounts into the work breakdown structure without allocation of a single control account to two or more work breakdown structure elements.

18. Summarize direct costs from the control accounts into the contractor's organizational elements without allocation of a single control account to two or more organizational elements.

19. Record all indirect costs which will be allocated to the contract.

20. Identify unit costs, equivalent units costs, or lot costs when needed.

21. For EVMS, the material accounting system will provide for:

  • Accurate cost accumulation and assignment of costs to control accounts in a manner consistent with the budgets using recognized, acceptable, costing techniques.
  • Cost performance measurement at the point in time most suitable for the category of material involved, but no earlier than the time of progress payments or actual receipt of material.
  • Full accountability of all material purchased for the program including the residual inventory.

Analysis and Management Reports

22. At least on a monthly basis, generate the following information at the control account and other levels as necessary for management control using actual cost data from, or reconcilable with, the accounting system:

  • Comparison of the amount of planned budget and the amount of budget earned for work accomplished. This comparison provides the schedule variance.
  • Comparison of the amount of the budget earned the actual (applied where appropriate) direct costs for the same work. This comparison provides the cost variance.

23. Identify, at least monthly, the significant differences between both planned and actual schedule performance and planned and actual cost performance, and provide the reasons for the variances in the detail needed by program management.

24. Identify budgeted and applied (or actual) indirect costs at the level and frequency needed by management for effective control, along with the reasons for any significant variances.

25. Summarize the data elements and associated variances through the program organization and/or work breakdown structure to support management needs and any customer reporting specified in the contract.

26. Implement managerial actions taken as the result of earned value information.

27. Develop revised estimates of cost at completion based on performance to date, commitment values for material, and estimates of future conditions. Compare this information with the performance measurement baseline to identify variances at completion important to company management and any applicable customer reporting requirements including statements of funding requirements.
Revisions and Data Maintenance

28. Incorporate authorized changes in a timely manner, recording the effects of such changes in budgets and schedules. In the directed effort prior to negotiation of a change, base such revisions on the amount estimated and budgeted to the program organizations.

29. Reconcile current budgets to prior budgets in terms of changes to the authorized work and internal replanning in the detail needed by management for effective control.

30. Control retroactive changes to records pertaining to work performed that would change previously reported amounts for actual costs, earned value, or budgets. Adjustments should be made only for correction of errors, routine accounting adjustments, effects of customer or management directed changes, or to improve the baseline integrity and accuracy of performance measurement data.

31. Prevent revisions to the program budget except for authorized changes.

32. Document changes to the performance measurement baseline.

Attachment 2:  Tailored ANSI/EIA 748-A-1998 Guidelines

An abridged EV system for Tier 2 investments essentially employs 10 of the ANSI/EIA Standard’s 32 criteria to the program’s management.        

10 Criteria for Tier 2:

EVM Criterion 1:
Define authorized work elements for the program.  A work breakdown structure (WBS), tailored for effective internal management control, is commonly used in this process.

EVM Criterion 2:
Identify the program organizational structure, including the major subcontractors responsible for accomplishing the authorized work, and define the organizational elements in which work will be planned and controlled.

EVM Criterion 3:
Provide for integration of the company’s planning, scheduling, budgeting, work authorization and cost accumulation processes and, as appropriate, the program WBS and organizational structure.

EVM Criterion 6:
Schedule the authorized work in a manner that describes the sequence of work and identifies the significant task interdependencies required to meet the requirements of the program.

EVM Criterion 7:
Identify physical products, milestones, technical performance goals or other indicators used to measure progress.

EVM Criterion 8:
Establish and maintain a time-phased budget baseline at the control account level against which program performance can be measured.  Initial budgets established for performance measurement will be based on either internal management goals or the external customer-negotiated target cost, including estimates for authorized (but incomplete) work.  Budget for long-term efforts may be held in higher level accounts until it is appropriate for allocation at the control account level.  On government contracts, if an over-target baseline is used for performance measurement reporting purposes; prior notification must be provided to the customer.

EVM Criterion 16: 
Record direct costs consistently with the budgets in a formal system controlled by the general books of account.

EVM Criterion 22:
At least monthly, generate the following information at the control account and other levels as necessary for management control using actual cost data from, or reconcilable with, the accounting system:  The amount of planned budget versus the budget earned for work accomplished.  This comparison provides the schedule variance.  The amount of the budget earned versus the actual (applied where appropriate) direct costs for the same work.  This comparison provides the cost variance.

EVM Criterion 27:
Develop revised cost estimates at completion based on performance to date, commitment values for material and estimates of future conditions.  Compare this information with the performance measurement baseline to identify variances at completion important to company management and any applicable customer reporting requirements, including statements of funding requirements.

EVM Criterion 28:
Incorporate authorized changes in a timely manner, recording the effects in budgets and schedules.  Base changes on the amount estimated and budgeted to the program organizations.  

Attachment 3:  Solicitation Provisions and Contract Clauses

This attachment includes contract language relevant for EVM reporting.

34.X03  Solicitation provisions and contract clause.

    (a) The contracting officer shall insert a provision that is substantially the same as the provision at 52.234-X1, Notice of Earned Value Management System, in solicitations for contracts that require the contractor to use an earned value management system (EVMS) and for which the Government may require an Integrated Baseline Review (IBR) after contract award. When an offeror is required to provide an EVMS plan as part of its proposal, the contracting officer shall forward a copy of the plan to the cognizant Administrative Contracting Officer (ACO) or responsible Federal department or agency and obtain their assistance in determining the adequacy of the proposed EVMS plan.

    (b) The contracting officer shall insert a provision that is substantially the same as the provision at 52.234-X2, Notice of Earned Value Management System-Pre-Award IBR, in solicitations for contracts that require the contractor to use an EVMS and for which the Government will require an IBR prior to contract award. When an offeror is required to provide an EVMS plan as part of its proposal, the contracting officer shall forward a copy of the plan to the cognizant ACO or responsible Federal department or agency and obtain their assistance in determining the adequacy of the proposed EVMS plan.

    (c) The contracting officer shall insert a clause that is substantially the same as the clause at 52.234-X3, Earned Value Management System, in solicitations and contracts that require a contractor to use an earned value management system (EVMS).

52.234-X1  Notice of Earned Value Management System.

    As prescribed in 34.X03(a) use the following provision:

Notice of Earned Value Management System (Date)
    (a) The offeror shall provide documentation that the cognizant Administrative Contracting Officer (ACO) or a Federal department or agency has recognized that the proposed earned value management system (EVMS) complies with the EVMS guidelines in ANSI/EIA Standard-748-98 (current version at time of solicitation).

    (b) If the offeror proposes to use a system that does not meet the requirements of paragraph (a) of this provision, the offeror shall submit a comprehensive plan for compliance with the EVMS guidelines.

    (1) The plan shall—

  • Describe the EVMS the offeror intends to use in performance of the contracts;
  • Distinguish between the offeror's existing management system and modifications proposed to meet the guidelines;
  • Describe the management system and its application in terms of the EVMS guidelines;
  • Describe the proposed procedure for administration of the guidelines, as applied to subcontractors; and
  • Provide documentation describing the process and results of any third-party or self-evaluation of the system's compliance with the EVMS guidelines.

    (2) The offeror shall provide information and assistance as required by the Contracting Officer to support review of the plan.

    (3) The Government will review the offeror's plan for EVMS before contract award.

    (c) Offerors shall identify the major subcontractors, or major subcontracted effort if major subcontractors have not been selected, planned for application of the guidelines. The prime Contractor and the Government shall agree to subcontractors selected for application of the EVMS guidelines.
    (End of provision)

52.234-X2  Notice of Earned Value Management System--Pre-Award IBR.

    As prescribed in 34.X03(b), use the following provision:
Notice of Earned Value Management System, Pre-Award IBR (Date)    (a) The offeror shall provide documentation that the cognizant Administrative Contracting Officer (ACO) or a Federal department or agency has recognized that the proposed earned value management system (EVMS) complies with the EVMS guidelines in ANSI/EIA Standard-748-98 (current version at time of solicitation).

    (b) If the offeror proposes to use a system that does not meet the requirements of paragraph (a) of this provision, the offeror shall submit a comprehensive plan for compliance with the EVMS guidelines.

  • The plan shall—
  • Describe the EVMS the offeror intends to use in performance of the contracts;
  • Distinguish between the offeror's existing management system and modifications proposed to meet the guidelines;
  • Describe the management system and its application in terms of the EVMS guidelines;
  • Describe the proposed procedure for administration of the guidelines, as applied to subcontractors; and
  • Provide documentation describing the process and results of any third-party or self-evaluation of the system's compliance with the EVMS guidelines.

    (2) The offeror shall provide information and assistance as required by the Contracting Officer to support review of the plan.

    (3) The Government will review and approve the offeror's plan for EVMS before contract award.

    (c) Offerors shall identify the major subcontractors or major subcontracted effort if major subcontractors have not been selected subject to the guidelines. The prime Contractor and the Government shall agree to subcontractors selected for application of the EVMS guidelines.

    (d) The Government will conduct an Integrated Baseline Review (IBR), as designated by the agency, prior to contract award. The objective of the IBR is for the Government and the Contractor to jointly assess technical areas, such as the Contractor's planning, to ensure complete coverage of the contract requirements, logical scheduling of the work activities, adequate resources, methodologies for earned value (budgeted cost for work performed (BCWP)), and identification of inherent risks.
    (End of provision)

52.234-X3  Earned Value Management System.

    As prescribed in 34.X03(c), insert the following clause:
Earned Value Management System (Date)

    (a) In the performance of this contract the Contractor shall use an earned value management system (EVMS) to manage the contract that at the time of contract award has been recognized by the cognizant Administrative Contracting Officer (ACO) or a Federal department or agency as compliant with the guidelines in ANSI/EIA Standard-748-98 (current version at time of award) and the Contractor will submit reports in accordance with the requirements of this contract.

    (b) If, at the time of award, the Contractor's EVMS has not been recognized by the cognizant ACO or a Federal department or agency as complying with EVMS guidelines (or the Contractor does not have an existing cost/schedule control system that is compliant with the guidelines in ANSI/EIA Standard-748-98 (current version at time of award)), the Contractor shall apply the system to the contract and shall be prepared to demonstrate to the ACO that the EVMS complies with the EVMS guidelines referenced in paragraph (a) of this clause.

    (c) Agencies may conduct Integrated Baseline Reviews (IBR). If a pre-award IBR has not been conducted, such a review shall be scheduled as early as practicable after contract award, but not later than 180 days after award. The Contracting Officer may also require an IBR at (1) exercise of significant options or (2) incorporation of major modifications. Such reviews will normally be scheduled before award of the contract action.

    (d) Unless a waiver is granted by the ACO or Federal department or agency, Contractor proposed EVMS changes require approval of the ACO or Federal department or agency, prior to implementation. The ACO or Federal department or agency, shall advise the Contractor of the acceptability of such changes within 30 calendar days after receipt of the notice of proposed changes from the Contractor. If the advance approval requirements are waived by the ACO or Federal department or agency, the Contractor shall disclose EVMS changes to the ACO or Federal department or agency at least 14 calendar days prior to the effective date of implementation.

    (e) The Contractor agrees to provide access to all pertinent records and data requested by the Contracting Officer or a duly authorized representative. Access is to permit Government surveillance to ensure that the EVMS conforms, and continues to conform, with the performance criteria referenced in paragraph (a) of this clause.

    (f) The Contractor shall require the subcontractors specified below to comply with the requirements of this clause: [Insert list of applicable subcontractors.]
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(End of clause)

Attachment 4:  EVM Analysis Process

The steps described in this attachment utilize examples to assist investment personnel in understanding some of the monthly activities surrounding the EVM analysis process.  The level of the analysis activity is dependent upon many situations.  The stage of the project, the size of the WBS, the condition of the contractor's performance, the type of contract, or the number of CPR's an analyst has to review monthly, all affect the analyst's capability to perform any detailed analysis.
Step 1. Update the computer database or, if applicable EVM spreadsheet. Analyze and evaluate the updated data.  Include in the analytical process evaluation of graphs that show current status or forecast future expectations; any trends identified; workforce usage; contract changes; and Management Reserve (MR) and Undistributed Budget (UB) usage. Areas that may trigger a more detailed investigation include the following:
a. Dramatic decreases in MR,
b. Excessive internal replanning,
c. Increases to WBS elements which are not related to contract change activity,
d. Dramatic changes to the latest revised estimate,
e. Depletion of MR into WBS or functional elements having problems, and
f. Lingering UB.
Step 2. Discuss the evaluations with the project functional experts.  As an example a discussion may occur with a Software Engineer, or  System Testers on the evaluation of the contractor's performance observed during any in-plant visits or discussions with the contractor.  Such items as requirements development status, design documentation and review will yield a great deal of information which can be related to the cost/schedule performance. The relationship will not be dollar for dollar, or day for day, but it will be sufficient to provide an indication of trend direction and highlight areas of concern. When obtaining information from the functional experts, always bear in mind the cost/schedule/workforce trends, Estimates At Completions (EAC), schedule status, and an understanding of the risk remaining.
Step 3. Continuing with the example provided above, the next step would be to form a list of questions to ask the contractor at the next in-plant management review. When the management review is to be held at the contractor's facility, coordinate with the contractor and the EVMS certifying entity for discussions with any Cost Account Manager to further investigate areas of concern/interest, as necessary. Questions may also be directed to the contractor representative.
Step 4. Finalize nalysis and generate the project's EAC.
Step 5. Integrate analysis work within the overall project management process. The EAC has to relate to funding requirements. This is achieved by adding to the project EAC any authorized/potential contract changes not currently in the CPR baseline data. Time phase the EAC for fiscal year requirements identification. Changes not yet negotiated should be factored down to reflect anticipated negotiations. Contract Change Proposals and Task Change Proposals are used to propose changes to contractual requirements other than those contained in specifications and engineering drawings, e.g., SOW task, test plans, or other contractual documents such as a configuration management plan. Change Proposals are used to propose changes to specifications.
Step 6. Frequent contacts with the EVMS certifying entity will assist the analyst in his/her own analysis of the data. An EVMS analyst does surveillance of the contractor's earned value management system, as applied to all government contracts within the facility. The program/project analyst should be aware of any contractor system deficiencies that could have potential impact to the project.  

Attachment 5:  Sample Data Item Description (DID) Content

This attachment contains samples of some of the information contained in several common EVM DIDs.  Each DID will need to be tailored to the appropriate project needs.


Title

EVM System Description (Criteria)

Description/
Purpose

To provide a description of the contractor's methods, policies, and procedures utilized in meeting HHS EVM requirements.

Submission Frequency

Per the direction of the cognizant Government Contracting Officer; update as required.

Scope

The EVM System Description shall provide a description of the system and the contractor's comprehensive plan for complying with HHS EVM  requirements.

Contents

The EVM System Description shall provide an understanding of each activity required to meet the HHS EVM requirements. The document shall briefly, but comprehensively, present the contractor's approach and schedule of internal activities to comply with HHS EVM requirements and to demonstrate this compliance. The document shall include the contractor's plan for implementation of and activities leading up to the demonstration review with the HHS Review Team. The contractor shall provide a monthly status of progress toward meeting this plan until the contractor's management system is accepted by the HHS Review Team.

Format

Contractor format is acceptable.

Maintenance

Changes shall be incorporated by change page or complete reissue.

Title

EVM System Description (Modified Criteria)

Description/
Purpose

To provide a description of the contractor's methods, policies, and procedures utilized in meeting HHS EVM requirements.

Submission Frequency

Per the direction of the cognizant Government Contracting Officer; update as required.

Scope

The Earned Value Management System Description shall provide a description of the system and the contractor's comprehensive plan for complying with HHS EVM requirements.

Contents

The EVM System Description shall provide an understanding of each activity required to meet HHS EVM requirements.  The document shall briefly present the contractor's approach and schedule of internal activities to meet HHS EVM requirements. The document shall include the contractor's plan for implementation of and activities leading up to the demonstration review with the HHS Review Team. The contractor shall provide a monthly status of progress until the contractor's management system is accepted by the HHS Review Team.

Format

Contractor format is acceptable.

Maintenance

Changes shall be incorporated by change page or complete reissue.

Title

Contract Performance Report

Description/
Purpose

To provide information for (1) integrating cost and schedule performance data with technical performance measures, (2) assessing the magnitude and impact of actual and potential problem areas causing significant cost and schedule variances, and (3) providing valid, timely project status information to higher management.

Submission Frequency

Monthly; by the 10th working day following the close of the prior month accounting period. Format 5: Updated list of the rankings every 6 months, based on performance to date.

Scope

The Contract Performance Report (CPR) includes data to measure cost and schedule performance.

Contents

The CPR shall include data pertaining to all authorized contract work, including both priced and unpriced effort,that has been authorized at a not-to-exceed amount in accordance with the Contracting Officer's direction. The CPR shall separate direct and indirect costs and identify elements of cost for all direct reporting elements. The CPR shall consist of the following:
Format 1, Work Breakdown Structure (WBS): Format 1 shall provide data to measure cost and schedule performance by summary level WBS elements, and the hardware, software, and services HHS is buying. Critical/major subcontractor summary-level performance measurement data shall be included as an attachment to Format 1.  Subcontractor CPR or Cost/Schedule Status Report (C/SSR) are acceptable.
Format 2, Organizational Categories: Format 2 provides the same data as Format 1, sorted by the contractor organization. If the contractor is organized by product, Format 2 is optional. Organizational category reporting shall be to the first level of the program's organizational structure.
Format 3, Baseline: Format 3 provides the budget baseline plan against which performance is measured. It is the baseline report used to track all changes to the Performance Measurement Baseline (PMB). Format 3 shall contain workforce forecasts for two 3-month periods (columns 10 and 11), two subsequent 12-month periods (columns 12 and 13), and the remainder of the contract for the last period (column 14).
Format 4, Staffing: Format 4 shall provide workforce staffing forecasts for correlation with the budget plan and cost estimates and contain the workforce baseline which will be updated and submitted whenever the Performance Measurement Baseline changes.  Organizational category reporting shall be to the first level of the program's organizational structure.  Format 4 shall contain baseline and workforce forecasts for two 3-month periods (columns 10 and 11), two subsequent 12-month periods (columns 12 and 13), and the remainder of the contract for the last period (column 14).
Format 5, Explanations and Problem Analyses: Format 5 shall be a narrative report used to explain significant cost and schedule variances and other identified contract problems.  Subcontractor variance analyses (determined by the prime contractor) and a discussion of the prime contractor's analysis of the subcontractor's performance shall be provided in Format 5.  In the initial submission of the CPR (Format 5), the contractor shall rank, in descending order of criticality (i.e., the most critical elements will be at the top of the list and the least critical will be at the bottom), all reporting-level WBS elements anticipated (as determined by the contractor Project Manager) to be schedule drivers, and all WBS elements (in a similar ranking) anticipated to be the cost drivers on the project. The contractor shall submit an updated list of the rankings every 6 months, based on performance to date. The Government reserves the right to modify this ranking based on Government perception of criticality. If the contractor uses "critical path" scheduling techniques, identification of the critical path by WBS element will meet the schedule drivers' requirement. Ranking of the critical path cost drivers shall also be provided. These critical elements shall reconcile to the Master Schedule submitted to the Government.
Variance Analysis: The Variance Analysis shall be a narrative report addressing the following:
Impact to the contract Estimate-at-Complete (EAC) for all cost and schedule driver variances addressed.
Explanation for all variances at completion over threshold.
Corrective Action Plan, as applicable.

Format

CPR formats shall be completed according to the instructions outlined in the applicable DID. Contractor format shall be substituted for CPR formats whenever they contain all the required data elements at the specified reporting levels in a form suitable for HHS management use. The CPR shall be submitted electronically and followed up with a signed paper copy. The American National Standards Institute (ANSI) X12 standards (transaction sets 839 for cost and 806 for schedule), or the United National Electronic Data Interchange for Administration, Commerce and Transport (EDIFACT) equivalent, shall be used for Electronic Data Interchange. This information is located at http://www.unece.org/trade/untdid/

Maintenance

None required.

Title

Modified Contract Performance Report

Description/
Purpose

To provide information for (1) integrating cost and schedule performance data with technical performance measures, (2) assessing the magnitude and impact of actual and potential problem areas causing significant cost and schedule variances, and (3) providing valid, timely program status information to higher management.

Submission Frequency

Monthly; by the 10th working day following the close of the prior month accounting period. Format 5: Updated list of the rankings every 6 months, based on performance to date.

Scope

The Modified Contract Performance Report (MCPR) includes data to measure cost and schedule performance.

Contents

The MCPR shall include data pertaining to all authorized contract work, including both priced and unpriced effort, that has been authorized at a not-to-exceed amount in accordance with the Contracting Officer's direction. The MCPR shall separate direct and indirect costs and identify elements of cost for all direct reporting elements. The MCPR shall consist of the following:
Format 1, Work Breakdown Structure (WBS): Format 1 shall provide data to measure cost and schedule performance by summary level WBS elements, and the hardware, software, and services HHS is buying. Critical/major subcontractor summary level performance measurement data shall be included as an attachment to Format 1. Subcontractor MCPR or Cost/Schedule Status Report (C/SSR) are acceptable.
Format 3, Baseline: Format 3 provides the budget baseline plan against which performance is measured. It is the baseline report used to track all changes to the Performance Measurement Baseline (PMB). Format 3 shall contain baseline forecasts for two 3-month periods (columns 10 and 11), next two subsequent 12-month periods (columns 12 and 13), and the remainder of the contract for the last period (column 14).
Format 5, Explanations and Problem Analyses: Format 5 shall be a narrative report used to explain significant cost and schedule variances and other identified contract problems/actions. Subcontractor variance analyses (determined by the prime contractor) shall be provided and a discussion of the prime contractor's analysis of the subcontractor's performance shall be provided in Format 5. In the initial submission of the MCPR (Format 5), the contractor shall rank, in descending order of criticality (i.e., the most critical elements will be at the top of the list and the least critical will be at the bottom of the list), all reporting level WBS elements anticipated (as determined by the contractor Project Manager) to be schedule drivers, and all WBS elements (in a similar ranking) anticipated to be the cost drivers on the project. The contractor shall submit an updated list of the rankings every 6 months, based on performance to date. The Government reserves the right to modify this ranking based on Government perception of criticality. If the contractor uses "critical path" scheduling techniques, identification of the critical path by WBS element will meet the schedule drivers' requirement. Ranking of the critical path cost drivers shall also be provided. These critical elements shall reconcile to the Master Schedule submitted to the Government.
Variance Analysis: The Variance Analysis shall be a narrative report and address the following:
Impact to the contract Estimate-at-Complete (EAC) shall be provided for all cost and schedule driver variances addressed.
Explanation for all variances at completion over set thresholds.
Corrective Action Plan, as applicable.

Format

MCPR formats shall be completed according to the instructions outlined in the applicable DID.  Contractor format shall be substituted for MCPR formats whenever they contain all the required data elements at the specified reporting levels in a form suitable for HHS management use. The MCPR shall be submitted electronically and followed up with a signed paper copy. The American National Standards Institute (ANSI) X12 standards (transaction sets 839 for cost and 806 for schedule), or the United National Electronic Data Interchange for Administration, Commerce and Transport (EDIFACT) equivalent, shall be used for Electronic Data Interchange. This information is located at http://www.unece.org/trade/untdid/.

Maintenance

None required.

Title

Work Breakdown Structure (WBS) and WBS Dictionary

Description/
Purpose

To establish a framework for reporting program cost, schedule, and technical performance. To provide a basis for uniform planning, reporting status, program visibility, and assignment of responsibilities.

Submission Frequency

30 days after Authority To Proceed, update as required. Revised pages shall be submitted 10 calendar days after contract WBS changes (following Government approval).

Scope

The WBS establishes a product-oriented logical subdivision of hardware, software, services, facilities, etc., that make up the total project scope of work. The WBS Dictionary provides a narrative description of the tasks and effort to be performed in each WBS element.

Contents

The WBS index shall include--
Line item number.
WBS elements/tasks listed by title and indentured to reflect the level (e.g., level 1 is total contract; levels 2 and following are successively lower levels).
Indication of phase (i.e., research, development, test and evaluation; or production; or both) with which the WBS element is associated.
Contract line item associated with the WBS element.
Statement Of Work (SOW) paragraph numbers associated with the WBS element.
Specification number of the specification that covers the WBS element (if applicable). If the specification is associated with more than one WBS element, indicate the specification paragraph numbers associated with the WBS element.
Contract end item number of WBS element (if applicable).
WBS Dictionary - The WBS dictionary shall describe the technical and cost content of every WBS element and efforts associated with each element (e.g., design, development, manufacturing). For WBS elements specified elsewhere for cost reporting, the WBS dictionary definitions shall also include the exact narrative of the directly associated SOW paragraphs. The WBS dictionary shall be arranged in the same order as the contract WBS index. Following the description of the WBS element shall be a listing of lower level WBS elements. The WBS dictionary shall include the following for each WBS element:
WBS element title, number, and element task description.
Performance Measurement Criteria (PMC).
SOW paragraph number.
Specification (number and title) associated with the WBS element.
Contract line item associated with the WBS element.
Date, revision number, revision authorization, and approved changes.
Contract end item/data item number and quantity.
Cost content and description.
WBS code and work order/work authorization.
Technical content.
System contractor.
Associate or subcontractor.
Applicable SOW narrative.

Format

The WBS shall be in a chart format showing element relationships, arranged in the same order as the WBS provided in the Request for Proposal. The WBS Dictionary shall be ordered in consonance with the WBS index and shall reference each WBS element by its identifier and name.

Maintenance

Changes shall be incorporated by change page or complete reissue.

Title

Project Schedules

Description/
Purpose

To provide the contractor's time-phased plan, current status, key milestones, task interdependencies, and major development phases necessary to accomplish the total scope of work. To provide management visibility into contractor status and potential problem areas, critical path identification and assessment, trend analysis, and to serve as a basis for evaluating contractor performance.

Submission Frequency

Monthly, no later than the 10th day of the calendar month following the end of the contractor's calendar month.

Scope

The Project Schedules provide data for the assessment of contract schedule and logic network of the tasks to be performed.

Contents

The Project Schedule and Logic Network report shall document the contractor's time-phased plan for completing the total contracted scope of work. Schedules shall contain the approved baseline schedule as well as current forecasted dates and shall be traceable to the approved Contract Work Breakdown Structure (CWBS). Project Schedules and Logic Network shall be reported in four sections. All data contained in the sections shall be consistent, statused monthly and based on the same cutoff date.
Project Master Schedule -- One page, top level, Gantt-type summary document arranged by WBS that reflects all contract and controlled milestones, major project phases (i.e., design, fabrication, integration, assembly) and all end item deliveries.
WBS Summary Schedules -- Gantt-type summary documents arranged by WBS that cover each WBS level TBD element. Data reflected within these schedules shall be at least at the WBS level TBD with lower level detail being provided as required by HHS project management. These schedules shall contain identification of major project phases (i.e., design, development, deployment and integration, test and acceptance), all contract and controlled milestones, key subcontractor milestones, and end item delivery dates, critical path identification, key data delivery dates, and key Government Furnished Property (GFP) need dates. (To prevent potential conflicts in schedule data and to minimize data maintenance, it is recommended that these schedules be summary extractions from the automated logic network database.)
Logic Network Database -- An automated logic network database consisting of schedule data for all CWBS elements. The entire scope of work shall be broken into schedule tasks and milestones at a consistent level of detail to allow discrete progress measurement and visibility into the overall development, fabrication, integration, assembly, test, and delivery phase of each end item deliverable. Additionally, all schedule tasks/milestones shall be integrated with the appropriate sequence relationships to provide a total end-to-end logic network leading to each end-item delivery. The logic network database serves as the basis for identification of project critical paths as well as critical schedule analysis.
Contractor Schedule Assessment Report -- This report shall contain a trend analysis of weeks ahead/behind for each WBS level TBD element, primary and secondary critical path narrative, variance rationale and impact statements for contract/controlled milestone variances, and proposed work-around plans for significant behind schedule situations.

Format

Contractor format is acceptable. Submission of the project schedules and logic network shall be by standard hardcopy and electronic media. Electronic media submittals shall be in a format compatible with the project office requirements. (A legend identifying the contractor's schedule symbols used and their meaning shall be provided.)

Maintenance

Changes shall be incorporated by change page or complete reissue.

Title

Technical Performance Report

Description/
Purpose

To provide data for the assessment of the design, development, test, evaluation, and related integration for the system and its elements.

Submission Frequency

Monthly, submit no later than the 10th day of the calendar month following the end of the contractor's accounting month.

Scope

The Technical Performance Report presents a comparison of the expected performance and physical characteristics with the contractually specified values. It is the basis for reporting established milestones, and describes progress toward meeting the technical requirements.

Contents

The Technical Performance Report shall identify specific technical parameters that are considered critical. These items shall include critical requirements such as those identified in the contract end item specification(s). The provisions for measurement and tracking each parameter may include items such as:
Specification requirements and approved changes.
Program events significant to the achievement of the end value.
Conditions of measurement.
Current measurement values.
Predicted value of end product.
Identify variances from the approved technical requirements where adjustments are not made, if such variances will cause the performance of critical items to fall below the established minimum values.
In critical areas, analyze variances exceeding the tolerances to determine causes and assess the impact of changes on measurement control parameters, interface requirements, schedule, and cost, as appropriate. In instances of subcontract impact, the subcontractor's evaluation shall be obtained.
For identified performance deficiencies, procedures for developing recovery plans shall be specified that identify appropriate implications.
The contractor shall include a completed report documentation page (Standard Form 298) as the final page of each report submitted per NFS 1827.406-70.

Format

Contractor format is acceptable. Quantitative measurements shall be utilized to determine program success.

Maintenance

None required.


Attachment 6:  Instructions for DHHS Monthly EV Reporting

September Workbook
(Reporting Data-as-of: 8/31/2005)

The DHHS monthly EV reporting workbook is comprised of two worksheets titled “EV INPUT” and “EV SUMMARY”.  Values for the portfolio investment are entered in the gray-shaded areas of the “EV INPUT” worksheet.  These values are used to calculate the earned value information displayed on the “EV SUMMARY” worksheet. 

Note: With the exception of the gray-shaded areas, the EV reporting workbook is locked for editing. No data should be entered directly into the “EV SUMMARY” worksheet.

For entering data into the “EV INPUT” worksheet, follow the instructions below:
Note: Dollars should be entered in millions ($M) to three decimal points.

STEP 1:    Enter the name of the portfolio investment, the OPDIV name, and the data-as-of date in the upper right-hand area of the “EV INPUT” worksheet.

STEP 2:    In the CPIC Milestone column, provide a listing of the OMB approved milestones identified in the CPIC submission (section 2.1.15). These milestones should equate to the portfolio’s work breakdown structure (WBS) tasks at a single WBS level and should identify milestones appropriate to the size and complexity of the investment.  The next page provides a simple example of WBS reporting level.  The spreadsheet does not provide for reporting multiple/subordinate levels within the WBS.  There is currently room for 30 milestones. 

Note: If additional tasks need to be added, beyond the 30 rows currently in the spreadsheet, contact Andree Trelogan, at Andree.Trelogan@hhs.gov

STEP 3:    In the Milestone Type Column, select DME or Steady State using the pull-down list provided.

STEP 4:    Provide the Budget at Completion (BAC) for each milestone/task.  This is the total planned cost for that particular milestone/task.
STEP 5:    Provide the Budgeted Cost of Work Scheduled (BCWS) for each milestone/task as of the end of the reporting month.  This is the cumulative expected planned cost for that milestone/task up to August 31, 2005.     
STEP 6:    Provide the Actual Cost of Work Performed (ACWP) for each milestone/task as of the end of the reporting month.  This is the cumulative amount actually spent on that task up to August 31, 2005.
STEP 7:    Provide the percentage completed for that milestone/task as of the end of the reporting month.  This is an estimate of the work that has been completed as of August 31, 2005.

The Budgeted Cost of Work Performed (BCWP) on the “EV INPUT” worksheet is automatically calculated.

Review the “EV SUMMARY” worksheet to ensure that the calculations accurately reflect the status of the project.  The schedule variance, schedule variance percentage, and SPI as well as the cost variance, the cost variance percentage, and the CPI are all automatically calculated based on the information provided in the “EV INPUT” worksheet.

If you have questions regarding these spreadsheets, please contact Andree Trelogan at Andree.Trelogan@hhs.gov, or on 202-205-5987.

Example of WBS Level to Report on the February Monthly EV Report:

If the WBS had only two levels, report tasks at level two (see highlighted tasks below).  If it makes more sense in your reporting of EV data to report at another level, you may, just as long as all the tasks reported are at the same level.  The recommendation, however, for the purposes of this monthly report is not to report at the very highest level or the lowest level of your WBS.  

1.0 Module A
(Highest Level WBS Task)

 
 

1.1 Module A Task 1

 

1.2 Module A Task 2

 

1.3 Module A Task 3

2.0 Module B
(Highest Level WBS Task)

 
 

2.1 Module B Task 1

 

2.2 Module B Task 2

 

2.3 Module B Task 3

3.0 Module C
(Highest Level WBS Task)

 
 

3.1 Module C Task 1

 

3.2 Module C Task 2

 

3.3 Module C Task 3


Attachment 7:  Corrective Action Plan Template

A. Purpose:
This template may be used by Investment Managers when their investment receives a variance of + or -10% or more in cost, schedule or performance or they are requested by the ITIRB and/or CIO to complete one.  The use of this template allows the HHS CPIC Team to collect standardized information on strategies and tasks for improving the performance of an investment.

B. Overview:
Corrective Action Plans (CAPs) may be developed using a standard template. This template is designed to capture the specific tasks, dates, and responsible persons for improving the performance of investments that received a variance of + or -10% or more in cost, schedule, or performance.  The template also requires Investment Managers to consider how their CAP may impact other areas of the investment. It is possible that a CAP may consist of multiple strategies to improve performance depending on the number of areas that are in need of improvement.

CAPs may be subject to review by the ITIRB and CIO in order to assess the feasibility of the plan.  Plans that do not sufficiently address the issue(s) identified in the monthly ITIRB meeting may require the Investment Manager to meet with the ITIRB. This meeting will serve as a forum where the Investment Manager and the ITIRB can collaborate on approaches for improving the effectiveness of the CAP.

Below is a sample of the template that should be used for developing a CAP:

1. Project Management Qualification

Brief Description of the Issue:

Brief Description of the Corrective Action Plan strategy:

Task Number

Corrective Task

Point of Contact

Start Date

End Date

Comments

1.1

     

1.2

     

1.3

     

1.4

     

1.5

     

Impacts to other EVM Monthly Review Elements:

2. Cost Variance

Brief Description of the Issue:

Brief Description of the Corrective Action Plan strategy:

Task Number

Corrective Task

Point of Contact

Start Date

End Date

Comments

1.1

     

1.2

     

1.3

     

1.4

     

1.5

     

Impacts to other EVM Monthly Review Elements:

3. Schedule Variance

Brief Description of the Issue:

Brief Description of the Corrective Action Plan strategy:

Task Number

Corrective Task

Point of Contact

Start Date

End Date

Comments

1.1

     

1.2

     

1.3

     

1.4

     

1.5

     

Impacts to other EVM Monthly Review Elements:

4. Performance Variance

Brief Description of the Issue:

Brief Description of the Corrective Action Plan strategy:

Task Number

Corrective Task

Point of Contact

Start Date

End Date

Comments

1.1

     

1.2

     

1.3

     

1.4

     

1.5

     

Impacts to other EVM Monthly Review Elements:

 Attachment 8:  Glossary

TERM

DEFINITION

Actual Cost (AC)

The actual cost derived from the employed accounting system.  Also called ACWP.

Actual Cost of Work Performed (ACWP)

The sum of costs actually incurred in accomplishing the work performed.

Budget at Completion (BAC)

The sum total of the time-phased budget.

Budgeted Cost for Work Performed (BCWP)

A measure used to quantify the overall progress of the investment in monetary terms. BCWP is calculated by applying a performance measurement factor to the planned cost. (By comparing BCWP with ACWP, it is possible to determine if the investment is under or over budget.) Another term for BCWP is "earned value."

Budgeted Cost for Work Scheduled (BCWS)

The sum of the budgets for all planned work scheduled to be accomplished within a given time period. This term is often used to designate the cumulative to-date budget.

Contract  Data Requirements List (CDRL)

An element of the contract that specifies the data submittal requirements.

Contract Performance Report (CPR)

The Contract Performance Report (CPR) presents the cost and schedule data for the current period as well as in a cumulative format.  Formats 1 and 5 provide the HHS IT Investment Manager the insight needed to manage the investment.  Format 1 is a WBS-oriented contract report.  Costs are organized by WBS element at a level pre-determined by the HHS IT Investment team.  Format 5, Variance Narrative, is a problem analysis and variance-oriented report. It provides explanations for cost and schedule variances that have exceeded thresholds. It provides a written explanation as to why the variance occurred, as well as written descriptions on how the contractor plans to resolve the cause of the variance. Examples of the CPR Forms 1-5 are provided in the CPIC guide.

Contract Work Breakdown Structure (CWBS)

A customer-prepared breakout or subdivision of a project typically down to level three which subdivides the investment into all its major hardware, software, and service elements, integrates the customer and contractor effort, provides a framework for the planning, control, and reporting.

Control Account Manager (CAM)

A member of the organization responsible for cost account performance, and for the management of resources to accomplish such tasks.

Control Account Plan (CAP)

Control Account Plans (CAPs) document the underlying work packages and provide the CAM with a source to evaluate his or her BCWS, ACWP, and BCWP (Earned Value) of each for the CAM’s Control Accounts.

Corrective Action  Plan (CAP )

Corrective Action Plans are documents that allow Investment Managers to define the strategy that will be employed to improve the performance of their investments.

Cost Performance Index (CPI)

Ratio of work accomplished versus work cost incurred for a specified time period. The CPI is an efficiency rating for work accomplished for resources expended.

Cost Variance (CV)

The difference between the earned value and the actual cost.

Data Item Description (DID)

Data Item Description contains the format and content preparation instructions for the data product generated by the specific and discrete task requirements as delineated in the contract.

Earned Value (EV)

EV quantifies the amount or volume of work completed to date, and is commonly known as the Budgeted Cost of Work Performed (BCWP).  When compared to the planned value (Budgeted Cost of Work Scheduled) and its actual cost (Actual Cost of Work Performed), EV provides an objective measure of schedule and cost performance. 

Earned Value Management (EVM)

EVM is a methodology that integrates a program’s work scope, schedule, and resources to enable government and contractor management to objectively track program progress throughout the project’s life cycle.  Please refer to the ANSI/EIA Standard 748-A for additional information. 

Earned Value Management Implementation Guide (EVMIG)

The EVMIG  provides guidance for understanding earned value management concepts, defines objective criteria for earned value management systems and provides guidance in interpreting those criteria for use on large, risky, cost based government programs.  Procedural aspects for Government personnel for specifying and using earned value management systems and for evaluating those systems are also provided.

Earned Value Management System (EVMS)

EVMS is the integrated set of processes, applications, and practices that follow the guidelines in the ANSI/EIA Standard 748-98.  The guidelines describe the attributes of an effectively integrated cost, schedule, and technical performance management system.

Estimate at Completion (EAC)

A value expressed in either dollars and /or hours, to represent the projected final costs of work when completed. The EAC is calculated as ETC + ACWP.

Estimate to Complete (ETC)

The value expressed in either dollars or hours developed to represent the cost of the work required to complete a task. Cobra calculates the ETC by subtracting the budgeted cost of work performed from the budget at complete. The ETC is calculated as BAC - BCWP.

EVM System Certification

EVM System Certification is the process to determine that the proposed EVM System being used for a specific investment fully complies with the ANSI 748-A-1998 Standard.  The process involves a lengthy evaluation of the management system to ensure that management system characteristics expected in a good EVMS relative to the 32 ANSI criteria are supported, along with typical documents that support these characteristics.  (See the DoD Earned Value Management Implementation Guide, Appendix B, Earned Value Management System Evaluation Guide)

Integrated Baseline Review (IBR)

An IBR is intended to verify the technical content and realism of the related performance budgets, resources, and schedules.  It should provide a mutual understanding of the inherent risks in the offerors’/contractors’ performance plans and the underlying management control systems, and it should formulate a plan to handle these risks.

Integrated Master Schedule (IMS)

The IMS is developed for the HHS IT Investment so that tasks and mile­stones are clearly defined.  It is updated regularly to identify IT investment elements that are behind as well as those ahead of schedule.  The IMS maps directly to the CWBS enabling the investment management team a single point of reference for all activities.

Management Reserve (MR)

A portion of the Contract Budget Base that is held for management control purposes by the contractor to cover the expense of unanticipated program requirements. It is not a part of the Performance Measurement Baseline. Another term for Management Reserve is Contingency

Organizational Breakdown Structure (OBS)

A hierarchical structure designed to pinpoint the area of an organization responsible for each part of an investment.

Performance Based Management System (PBMS)

Performance Based Management System incorporates performance measures and metrics with careful investment planning to effectively manage investments, programs, and projects.

Performance Measurement Baseline (PMB)

The PMB is the time-phased budget plan against which contract performance is measured. It is formed by the budgets assigned to scheduled cost accounts and the applicable indirect budgets. It equals the total budget less management reserve and undistributed budget. 
Once the PMB is frozen or established, cost and schedule changes must be processed through formal change control procedures.  Authorized changes must then be incorporated into the PMB in a timely manner and reflected in both budgets and schedules.

Planned Value (PV)

The assignment of the budget for each reporting period for each work component.  Also called BCWS.

Responsibility Assignment Matrix (RAM)

The RAM correlates the work required by a Contract Work Breakdown Structure (CWBS) element to the functional organization responsible for accomplishing the assigned tasks. The responsibility assignment matrix is created by intersecting the CWBS with the program Organizational Breakdown Structure (OBS). This intersection identifies the cost account.

Schedule Management Plan (SMP)

The Schedule Management Plan defines scope, purpose, and policy; participant roles and responsibilities; objectives; processes and procedures; organizational responsibilities and relationships; tools; reporting requirements; and related documents. It guides the overall implementation of schedule development and management over time.

Schedule Performance Index (SPI)

Ratio of work accomplished versus work planned, for a specified time period. The SPI is an efficiency rating for work accomplishment, comparing work accomplished to what should have been accomplished

Schedule Variance (SV)

The difference between the budgeted cost of work performed and the budgeted cost of work scheduled at any point in time (BCWP-BCWS).

Statement of Work (SOW)

A description of product and service to be procured under contract; a statement of requirements.

Subject Matter Expert (SME)

The Subject Matter Expert is the individual(s) who exhibits the highest level of expertise in performing a specialized job, task, or skill within the organization.

Undistributed Budget (UB)

Budget applicable to contract effort which has not yet been identified to specific cost accounts or work packages.

Variance at Completion (VAC)

Variance at Complete is the algebraic difference between Budget at Complete and Estimate at Complete.

Work Authorization Document (WAD)

The Work Authorization Document (WAD) is a document produced by the contractor and used internally.  It is not a deliverable item.  Included in the WAD are details concerning the task work to be performed, a detailed list of task outputs, CDRL items, and other task-specific deliverables.  It also includes the associated budget for the task and authorizing signatures that confirm that the staff member is authorized to work on the task. It should not include the number of hours that may be charged.  The Government IBR team evaluates the WAD to ensure that the work docu­mented is truly representative of the work to be performed, that the proper signatures are present, and that the deliverables listed are complete and accurate

1 HHS Memorandum Monthly Reporting of Earned Value Cost and Schedule Variances, January 31, 2005.

2 HHS Memorandum Team-Based Earned Value Management Guidelines, June 16, 2005.

3 HHS, Charles Havekost, CIO Memorandum Team-Based Earned Value Management Guidelines, June 16, 2005.

4 HHS Memorandum Team-Based Earned Value Management Guidelines, June 16, 2005.

5 Ibid.


6 Department of Defense Earned Value Management Implementation Guide, April 7, 2005.

7 FAR Case 2004-019, Federal Acquisition Regulation Earned Value Management System (EVMS), Federal Register, Volume 70, Number 67, April 8, 2005.

8 Only Tier 3 investments with current year DME funding equal to or greater than $500,000 are currently required to provide EVM reports.