Best Practices for Contract Administration Page 1 of 18

A GUIDE TO BEST PRACTICES FOR

CONTRACT ADMINISTRATION
OFFICE OF FEDERAL PROCUREMENT POLICY (OFPP)

OCTOBER 1994

TABLE OF CONTENTS

FOREWORD
3

CONTRACT ADMINISTRATION
5

OVERVIEW OF THE CONTRACT ADMINISTRATION PROJECT

7

CONTRACTING OFFICER'S TECHNICAL REPRESENTATIVE (COTR)

9

VOUCHER/INVOICE REVIEW, APPROVAL, AND PROCESSING

19

CONTRACT CLOSEOUT
25

CONCLUSION
31

FOREWORD

This is the first in a series of guidebooks on best practices developed by the Office of Federal
Procurement Policy. This guidebook contains best practices in contract administration that should be
useful tools to program and contracting officials in administering federal contracts. The covered areas
are:

Roles and Responsibilities of the Contracting Officer's Technical Representative (COTR).

Reviewing and Processing Vouchers.

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Contract Closeout

These practices should not be viewed as mandatory regulatory guidance; instead they should be viewed
as techniques that we hope are useful in performing the contract administration function.

As best practices are developed in other areas of contract administration, a supplement will be issued to
the guidebook.

We wish to thank the procurement and program officials from the major Executive Departments and
agencies, and those representatives from the private sector, who provided information on their
experiences in contract administration as the basis for this guidebook.

Copies of the guidebook may be obtained from the Executive Office of the President's Publications
Office by writing Office of Publications, 725 17th Street, N.W., Room 2200, New Executive Office
Building, Washington, DC 20503.

Steven Kelman

Administrator

Office of Federal Procurement Policy

Office of Management and Budget

CONTRACT ADMINISTRATION

Contract Administration involves those activities performed by government officials after a contract has
been awarded to determine how well the government and the contractor performed to meet the
requirements of the contract. It encompasses all dealings between the government and the contractor
from the time the contract is awarded until the work has been completed and accepted or the contract
terminated, payment has been made, and disputes have been resolved. As such, contract administration
constitutes that primary part of the procurement process that assures the government gets what it paid
for.

In contract administration, the focus is on obtaining supplies and services, of requisite quality, on time,
and within budget. While the legal requirements of the contract are determinative of the proper course of
action of government officials in administering a contract, the exercise of skill and judgment is often
required in order to protect effectively the public interest.

The specific nature and extent of contract administration varies from contract to contract. It can range
from the minimum acceptance of a delivery and payment to the contractor to extensive involvement by
program, audit and procurement officials throughout the contract term. Factors influencing the degree of
contract administration include the nature of the work, the type of contract, and the experience and
commitment of the personnel involved. Contract administration starts with developing clear, concise
performance based statements of work to the extent possible, and preparing a contract administration
plan that cost effectively measures the contractor's performance and provides documentation to pay
accordingly.

Post award orientation, either by conference, letter or some other form of communication, should be the

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beginning of the actual process of good contract administration. This communication process can be a
useful tool that helps government and contractor achieve a clear and mutual understanding of the
contract requirements, helps the contractor understand the roles and responsibilities of the government
officials who will administer the contract, and reduces future problems. It is helpful to have a pre-
meeting with applicable program and contracting officials prior to the post award orientation conference
so that there is a clear understanding of their specific responsibilities and restrictions in administering
the contract. Items that should be discussed at the pre-meeting include such things as the authority of
government personnel who will administer the contract, quality control and testing, the specific contract
deliverable requirements, special contract provisions, the government's procedures for monitoring and
measuring performance, contractor billing, voucher approval, and payment procedures.

Where appropriate, an alternative dispute resolution (ADR) technique known as "partnering" should be
discussed with the contractor to help avoid future contract administration problems. Partnering is a
technique to prevent disputes from occurring. It involves government and contractor management staff
mutually developing a "plan for success," usually with the assistance of a neutral facilitator. The
facilitator helps the parties establish a nonadversarial relationship, define mutual goals and identify the
major obstacles to success for the project. Potential sources of conflict are identified, and the parties
seek cooperative ways to resolve any disputes that may arise during contract performance. The process
results in the parties developing a partnership charter, which serves as a roadmap for contract success.
Many agencies have successfully used partnering on construction projects and are now beginning to
apply these principles in the automated data processing/information resources management area.

Good contract administration assures that the end users are satisfied with the product or service being
obtained under the contract. One way to accomplish customer satisfaction is to obtain input directly
from the customers through the use of customer satisfaction surveys. These surveys help to improve
contractor performance because the feedback can be used to notify the contractor when specified aspects
of the contract are not being met. In addition, the contracting and program officials can use the
information as a source of past performance information on subsequent contract awards. Customer
satisfaction surveys also help to improve communications between the procurement, program, and
contractor personnel.

OVERVIEW OF THE CONTRACT ADMINISTRATION PROJECT

Several weaknesses have been identified in contract administration practices used by civilian agencies.
The principal problem is that contracting officials often allocate more time to awarding contracts rather
than administering existing contracts. This often leads to problems in contractor performance, cost
overruns, and delays in receiving goods and services. Several other deficiencies have been noted such as
unclear roles and responsibilities of the contracting officer's technical representatives (COTR), excessive
backlog in contract closeout and incurred costs audits, improperly trained officials performing contract
oversight, unclear statements of work that hinder contractor performance, and inadequate guidance on
voucher processing and contract closeout. These weaknesses were identified in reports issued by the
Office of Management and Budget, namely, the "Report on Civilian Agencies Contracting
Practices" (1992), the "Report on Service Contracting Practices" (1993), and the "Interagency Report on
Civilian Agency Contract Administration" (1993).

The primary objective of the contract administration project is to establish best practices that agencies
can use to improve contract administration to assure responsiveness to customers and best value to
taxpayers. Improving contract administration practices will help to achieve excellence in contractor
performance so that the government receives goods and services on time, and within budget.

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A Contract Administration Team has been established to plan and carry out this project. The team
conducted interviews with contracting officials in the major departments and agencies and the private
sector to gather best practices or tricks-of-the-trade that could be applicable on a governmentwide basis.
Also, guidance documents that had been developed by the agencies and the private sector were reviewed
to help develop the best practices included in this guidebook.

Best Practices are defined as techniques that agencies may use to help detect and avoid problems in the
acquisition, management, and administration of contracts. Best practices are practical techniques gained
from practical experience that may be used to improve the procurement process.

Although several weaknesses have been identified as mentioned above, this guidebook provides best
practices in three areas of contract administration: clarifying the COTR's roles and responsibilities,
improving methods of processing contract vouchers and invoices, and improving procedures for closing
contracts.

Matrixes have been developed that state the concerns surrounding these three areas, with suggested best
practices that can be used to help address them.

CONTRACTING OFFICER'S TECHNICAL REPRESENTATIVE

(COTR)

The government is becoming increasingly aware of the importance of proper contract administration in
ensuring the maximum return on our contract dollars. The COTR plays a critical role in affecting the
outcome of the contract administration process.

The technical administration of government contracts is an essential activity. It is absolutely essential

that those entrusted with the duty to ensure that the government gets all that it has bargained for must be
competent in the practices of contract administration and aware of and faithful to the contents and limits
of their delegation of authority from the contracting officer. The COTR functions as the "eyes and ears"
of the contracting officer, monitoring technical performance and reporting any potential or actual
problems to the contracting officer. It is imperative that the COTR stay in close communication with the
contracting officer, relaying any information that may affect contractual commitments and requirements.

The COTR's contract administration duties can be simple or complex and time-consuming, depending
on the type of contract, contractor performance, and the nature of the work. Minimizing the use of cost-
reimbursement contracts and relying more on fixed price performance based contracts should reduce the
amount of resources and time devoted to contract administration. For example, a fixed-price contract
requires less surveillance by the COTR than a cost-reimbursement contract requires with its technical
surveillance and auditing of cost-requirements.

Agencies and departments have many different phrases to describe the COTR. Other titles used are:
Contracting Officer Representative (COR), Government Technical Representative (GTR), and
Government Technical Evaluator (GTE). For purposes of this guidebook, COTR is being used, as it is
the most common title for this function.

CONTRACTING OFFICER'S TECHNICAL REPRESENTATIVE

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(COTR)
CONCERNS BEST PRACTICES
Lack of training on COTR duties. Establishing a COTR training and certification program is a well
balanced approach that prepares the COTR to perform the job and
also strengthens contract administration.

Many agencies have a mandatory COTR training program.

Although some may not, their COTRs still attend a basic COTR
course; procurement ethics training; refresher COTR training; and
Procurement Integrity training.

COTRs are encouraged to keep pace with changes in procurement

by completing a minimum of eight additional hours of contract
administration training every three years, preferably through a
refresher COTR training course.

Courses in service contracting and preparing statements of work

are very helpful for COTRs who handle complex contracts and
service contracts; it helps them in the preparation of the contract
administration plan.

In addition to the general training on COTR duties, many agencies

have their contracting officers and the COTR review the contract
in detail and concur on the specific oversight approach for the
contract.

To emphasize the importance of the COTR role, some agencies

conduct Executive Seminars to train the COTR's supervisors.
Lack of training on COTR duties. An example of a unique COTR certification program is one that
(CONTINUED). correlates the amount of training to the dollar value and
complexity of contracts:

- The first level is a minimum of 16 hours of training for those

COTRs who handle contracts of relatively low complexity and
low contract management risk. The contracts are for dollar values
of $1,000,000 or less and are fixed-price type or straight-forward
cost-type contracts.

- The second level is a minimum of 40 hours of training for those

COTRs who handle contracts of moderate to high complexity and
contract management risk. The contracts are for dollar values
greater than $1,000,000 and cost-type contracts, specifically those
that have award fee, incentive fee or other complex contracts.

- The third level is a minimum of 40 hours in addition to project

management training for those COTRs who handle major systems
contracts.

After the COTR certification process is completed, some agencies

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conduct a formal ceremony to present the certificate and

acknowledge the importance of the COTR in monitoring
contractor performance. A special emblem may be provided to the
COTR indicating the specific area in which he/she has been
certified.
Lack of a well-defined relationship A partnership between the COTR and the contracting officer is
between the contracting officer and essential to establishing and achieving contract objectives because
the COTR. these two officials are responsible for ensuring that the contracting
process is successful.

Some agencies have developed a joint partnership agreement that

is signed during the preaward phase which defines how the parties
will work together. The agreement will contain milestones for the
various actions to be taken by each party. In some cases, daily
meetings between the COTR and the contracting officer are
required.
Lack of a well-defined relationship It is essential that the program personnel and the procurement
between the contracting officer and office work as a team. In many agencies, this is accomplished by
the COTR. (CONTINUED). contracting officers attending training with the COTR and
discussing relevant questions and concerns about the contract. In
other agencies, the teamwork concept is enhanced by designating
the COTR early in the process which helps the COTR to become
familiar with the program requirements and assist the contracting
officer in developing the contract administration plan and the
statement of work.

In an effort to help the contracting process work better and foster

teamwork, the COTR should ensure that the contracting officer
understands the program mission. In some cases, the COTR could
invite the contracting officer to accompany him/her to meetings,
conferences, and inspections so that the contracting officer can
become familiar with the program requirements. Also this affords
other field program personnel an opportunity to meet the
contracting officer.

The COTR should furnish to the contracting officer a copy of

government-contractor conference reports and correspondence in
order to keep the contracting officer up-to-date on contractor
performance.

The COTR should be identified as the primary focal point for the
customers to call concerning contractor performance. The COTR
should also provide the customers with a copy of contract
requirements.

An example of a relationship that may exist between the

procurement office and the program office is where the
contracting officer works for and reports directly to the program
manager. The program manager has full authority for fulfilling the
requirements of the contract with the client. The contracting

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officer may be viewed as a facilitator to ensure that good

contracting principles are adhered to while achieving the
program's goals.
Undefined COTR roles and Some COTRs view their job as a "plum assignment" because they
responsibilities. know their judgement is critical to the success of the program
requirements obtained through contracts. It is essential that
program offices designate technically competent people with
specialized qualifications and expertise as COTRs.

The COTR is nominated in writing by the program organization,

and notified by letter written and signed by the contracting officer.
In turn, the COTR acknowledges acceptance by signing and
returning a copy of the designation letter to the contracting officer.

The COTR letter should define the COTR's role and list specific
duties and tasks, including tasks that should not be performed. The
letter can be tailored specifically for each contract by listing
specific duties and tasks relevant to that contract. The COTR letter
can be signed by the COTR's supervisor to indicate that he or she
recognizes and accepts the demands on the COTR's performance.
A copy of the letter should be provided to the project officer and
the contractor so they will understand clearly the COTR's roles
and responsibilities.

The COTR can be designated in writing in the contract schedule.

Some agencies specify the COTR's name and duties in Section G,
Contract Administration, of the contract.

Some agencies have inserted a "Technical Direction" clause which

establishes the scope of the COTR's responsibilities in relation to
the contractor in their contracts. The clause further defines the role
of the COTR during contract performance.

As a result of lessons learned from contracting officials, COTRs

should be responsible for the following:

Developing a cost effective contract administration plan.

Following the plan to monitor contract performance.

Undefined COTR roles and Informing the contracting officer of any technical or contractual
responsibilities. (CONTINUED). difficulties encountered during performance in a timely manner.

Informing the contractor of failures to comply with technical

requirements of the contract or to show a commitment to customer
satisfaction, particularly if the contractor does not make
corrections.

Coordinating site entry for contractor personnel, if applicable.

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Evaluating proposals for and participating in negotiation of

changes, modifications, and claims at the request of the
contracting officer.

Maintaining a file that would contain the following: contract and

any modifications, all contract correspondence, inspections,
records, memos and conversations with the contractor,
invoices/vouchers, COTR appointment letter, and trip reports.

Performing final inspection/acceptance of all final work required

under the contract, including the review/approval of reports.
Undefined limitations of authority. COTRs are responsible for understanding the contract terms and
conditions and knowing the scope and limitations of their
authority. COTRs are encouraged to contact the contracting officer
for guidance if they are unclear about their authority or any
aspects of the contract.

Some agencies specify in Section G, Contract Administration, of

the contract, information on the COTR's limitation of authority.

As a result of lessons learned from contracting officials, COTRs

should avoid the following:

Awarding, agreeing to, modifying, increasing the scope and dollar

value of, or signing any contract.

Making commitments or promises (oral or written) to any

contractor.
Undefined limitations of authority. Issuing instructions (oral or written) to a contractor to start or stop
(CONTINUED). work.

Directing changes (oral or written).

Authorizing delivery or disposition of government-furnished

property.

Obligating the government.

Granting deviations from or waiving any of the terms and

conditions of the contract.

Changing the period of performance.

Authorizing subcontracting or the use of consultants.

Authorizing the use of overtime.

Executing a contract on behalf of the government.

Inadequate surveillance and The development of a contract administration plan is essential for

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monitoring of contracts. good contract administration.

Plan can be simple or complex but must specify what the

performance outputs of the statement of work are, and describe the
methodology to conduct the inspections. This saves time and
resources because the COTR is not monitoring the mundane,
routine portions of the contract; instead the COTR is focusing on
the major outputs of the contract.

The contract administration plan should contain a quality

assurance (QA) surveillance plan as a subpart. Development of a
plan is important since it provides a systematic structured method
for the COTR to evaluate services and products that contractors
are required to furnish. The QA plan should focus on the quality
of the product delivered by the contractor and not on the steps
taken or procedures used to provide that product. It includes
appropriate use of pre-planned inspections, validation of
complaints and random unscheduled inspections.
Inadequate surveillance and Enhanced monitoring of contracts can be achieved by having
monitoring of contracts. government quality assurance monitors, technical inspectors, and
(CONTINUED). COTRs report on the contractor's technical performance. They
make site visits and speak with the contractor concerning the
progress of the contract. Surveillance plans are used by them on a
daily basis. Random samples are drawn, and schedules of
inspection made using a contract administration checklist. A
sampling plan should be designed using quality standards.
Monitoring should be commensurate with the criticality of the
service or task and the resources available to accomplish the
monitoring.

As a result of lessons learned from contracting officials who

monitor cost-reimbursement contracts, the COTRs should perform
a head count periodically, examine time cards and sign-in sheets,
review the overtime, and maintain spreadsheets to track direct
costs and expenses.

Another valuable tool in monitoring is reviewing contractor

reporting requirements such as progress reports, shop plans, and
blueprints which often can uncover potential cost overruns, late
deliveries, and poor contractor performance.

Many agencies have found that documenting surveillance and

monitoring is key to the contract administration process.

Whatever form of monitoring the government utilizes, care should

be taken so that the contractor does not have just cause to cite
COTR interference in its operations.

Convening quarterly meetings with top level contractor officials,

agency senior procurements, and program officials to discuss the

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contractor's performance helps the COTR ensure that contract

terms and conditions are being adhered to.

Consider the use of customer satisfaction surveys for major

contracts to determine how program officials, customers, and
others interacting with the contractor evaluate the contractor's
performance. Some private sector firms now use customer
satisfaction surveys to help assess how customers feel about the
services they are receiving.
Lack of incentives. Consider giving an incentive award to the COTR of the year based
on such criteria as the amount of savings achieved, quality,
timeliness, minimum technical contract changes, and customer
satisfaction.

Some agencies cover COTR duties in the COTR position

description and have contract administration as a critical job
element in the COTR's performance evaluation. This is essential
for COTRs who handle large, complex contracts, especially cost-
reimbursement ones, that requires extensive surveillance.

An agency COTR newsletter is one mechanism for promoting the

accomplishments of the COTR, as well as providing information
on changes in procurement laws and legislation.

VOUCHER/INVOICE REVIEW, APPROVAL, AND PROCESSING

Voucher processing is just as important as any other aspect of contract administration. Payment to the
contractor for the supplies and services delivered is the government's obligation under the contract. The
government expects the contractor to meet all contract requirements for quality, quantity and timeliness.
The contractor expects no less of the government in meeting its obligation to timely, accurate payment
for supplies and services received. A plan or process for quickly and efficiently meeting this obligation
is as essential as the COTR's oversight monitoring plan.

Therefore, it is incumbent upon program, procurement, and finance officials to understand clearly their
roles and responsibilities related to reviewing and processing vouchers. This will ensure that payment is
only made to contractors who perform in accordance with contract terms and conditions. It is essential
that these tasks are discussed with the contractor and COTR during the post award orientation
conference. An important aspect of voucher review, approval, and processing is good communication
between the COTR, contracting officer, and finance official to ensure that payment is made on time.

For purposes of this guidebook, the words "vouchers" and "invoices" are used interchangeably.

VOUCHER PROCESSING
CONCERNS BEST PRACTICES
Unclear roles and responsibilities of Although recommendation for approval is often obtained from
procurement, program, and finance the COTR, authority to approve or disapprove payment of
officials with regard to review and vouchers and invoices is the responsibility of the contracting
approval of contractor invoices and officer.

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vouchers. Creating a good working relationship between the contracting

officer, the financial officer, and the COTR is key to the voucher
review and approval process. This, inturn, helps agencies to
comply with the Prompt Payment Act.

Reviewing the first voucher in detail with the contractor so far as

format and level of detail makes the second and subsequent
vouchers easier to review and process.

COTRs are in the best position to assess the reasonableness of

costs and expenditures on vouchers and invoices.

COTRs must always remember that payment to a contractor

implies work is progressing according to the contract; therefore,
COTRs must be assured that the government is getting what it is
paying for.

The COTR's recommended approval of a voucher implies that to

the best of the COTR's knowledge, the nature, type, and quantity
of effort or materials being expended are in general accord with
the progress of work under the contract.

COTRs provide support to the contracting officer and ensure that

payments are made to contractors that perform according to
contract terms and conditions by monitoring contractor's
performance through review of monthly reports, onsite visits, and
surveillance reviews.

It may be helpful for agencies to have procedures that requires the

COTR to certify on the invoices that supplies and services have
been received and accepted.
Unclear roles and responsibilities of In some cases, the contracting officer may designate a resident
procurement, program, and finance DCAA auditor as the contracting officer's representative for
officials with regards to review and reviewing and approving vouchers under cost-reimbursement
approval of contractor invoices and contracts.
vouchers. (CONTINUED).
Contracting and financial officials should always check the
mathematical accuracy of the voucher to avoid any overpayment
to the contractor.

Financial officials should ensure that a copy of each paid voucher

is returned to the contracting office for inclusion in the official
contract file.
Inconsistent review and approval by More indepth review of vouchers under cost reimbursement
contracting officials of vouchers for contracts is needed to ensure that costs are not being incurred
cost reimbursement contracts prior prematurely and relate to progress under the contract.
to payment.
Although agencies may have different procedures to review and
approve vouchers, some agencies have successfully avoided

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problems by having contracting officials review each voucher.

Insufficient guidance to Contracting When reviewing vouchers under cost reimbursement contracts,
Officer's Technical Representatives COTRs should check the voucher date against the contract
(COTRs) on how to conduct performance period to ensure that costs are being billed for the
voucher reviews. proper timeframe, and compare the contractor's billing rates
against the contract rates to ensure that indirect costs are being
billed properly. These measures, along with monitoring the
contractor's performance, helps the COTR determine if claimed
costs are reasonable for the period covered by the voucher.
Insufficient guidance to Contracting In addition, comparing the contractor's production report with any
Officer's Technical Representatives information gathered through monitoring the contractor's
(COTRs) on how to conduct performance gives the COTR some indication of the contractor's
voucher reviews. (CONTINUED). workload. If the contractor reports the same workload for two
different tasks, this is an indication to the COTR that something
maybe wrong with the invoice and it should be discussed with the
contractor.

When reviewing vouchers under cost reimbursement contracts,

the COTR should review the contractor's time cards, sign-in-
sheets, and overtime records to help assess the reasonableness of
direct labor costs.

Maintaining monthly reports or spreadsheets on costs incurred

against the contract amount helps the COTR monitor the
contractor's expenditures under the contract.

A checklist or some other voucher review form that includes the

major cost categories (labor, travel, supplies, other direct costs,
subcontract costs) may be a useful tool in reviewing vouchers to
determine the reasonableness of the contractor's claimed costs.
The checklist helps the reviewing official remember to check all
cost categories before recommending approval of the voucher for
payment.
No assessment of reasonableness of Some agencies conduct a financial management review of the
direct costs when approving contractor's current invoices during contract performance. The
vouchers under cost-reimbursement review is conducted at the contractor's location. The review helps
contracts. (Only technical progress the agency determine if the contractor's accounting and billing
and product or service quality are systems, and internal control policies and procedures are adequate
reviewed). to support costs claimed on the invoice. The review, which may
be done by in-house officials with audit experience results in
timely recovery of overpayments and lost interest, settle cost
allowability issues, and other matters associated with the
contractor's invoice. The review can fill the gap between the
initial invoice review and the contract audit.
No verification that approved If there are large cost-reimbursement contracts where a resident
indirect cost rates are being used. DCAA auditor is at the contractor's location, consideration should
be given to sending a copy of the voucher directly to DCAA for
review prior to payment. This reduces the burden on the
contracting officer and helps detect unallowable costs.

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Subsequent review by the COTR helps the contracting officer

determine if contractor performance is commensurate with the
amount shown on the voucher.
Insufficient policies and procedures Notify contractor of defects in invoice, i.e., an "improper
on voucher submission and invoice," within seven (7) days after receipt.
approval.
Authorization to pay may be indicated by an approval stamp on
the reverse of the original voucher.
Insufficient information on the Including detailed billing instructions in the contract provides
voucher for thorough desk review of information to the contractor on how to complete vouchers and
claimed costs to determine invoices properly. The instructions could provide samples of how
allowability, allocability, and a voucher should be prepared and submitted to the government
reasonableness. for payment.

When appropriate, it may be helpful to define in the contract the

distinction between a completion voucher (cumulative claim and
reconciliation) and a final voucher so that the contractor can
provide correct information on the voucher.

If the contractor provides its final settlement of claimed costs on

the completion voucher, that voucher should be considered the
final voucher.
Delays in processing vouchers. Designating alternate COTRs and contracting officers that have
authority to review and approve contractor vouchers and invoices
may alleviate delays in the approval process.

Performance measurements may be useful tools to help the

finance office determine how well the agency is doing in
reviewing and processing invoices/vouchers for payment in order
to comply with the Prompt Payment Act.

Prompt payment performance standards may help detect

weaknesses in the process and thus improve business
relationships with the contractors, and reduce costs to the
government.
Delays in processing vouchers. Tracking such performance data as the amount and number of
(CONTINUED). penalty payments, the reason, number and amount of discounts
taken, the number and amount of lost discounts, and late
payments provide valuable information to the finance office.

Established standards, i.e., the number of days for review and

approval by the contracting officer and COTR, helps to process
vouchers in a timely manner.

If timely payment of vouchers is a problem, a dedicated person in

the contracting office (normally a clerical position) may be
needed to log vouchers in and out, check figures for accuracy,
and assist the contracting officer, the financial officer and COTR
in timely processing of vouchers and invoices.

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Insufficient documentation, record Maintaining a voucher payment log, either manually or

keeping, and tracking of invoices computerized, in the contract file helps to track the contractor's
and vouchers. claimed costs and fee (if applicable) against contract costs and
fee.

Maintaining a copy of each paid voucher in the official contract

file helps to ensure proper accountability.

Establishing a separate post office box for receipt of vouchers

may help to avoid delays in processing.

Automated invoice tracking systems may help to track vouchers

and provide information to show if they are delinquent for
payment because standards were not met.

Automated invoice tracking systems may provide such reports as:

voucher status by specialist, overdue vouchers, vouchers that
have been rejected, and voucher history.

Contractor support may be used, if necessary, to operate the

automated invoice tracking system. Care should be taken to
ensure that the contractor does not make decisions about vouchers
that should be made by contracting officials.

Sending a list of names of authorized persons to sign invoices and

vouchers on each contract to the finance office with periodic
updates avoids delays in paying vouchers.

CONTRACT CLOSEOUT

Contract closeout begins when the contract has been physically complete, i.e., all services have been
performed and products delivered. Closeout is completed when all administrative actions have been
completed, all disputes settled, and final payment have been made. The process can be simple or
complex depending on the contract type for cost-reimbursement contracts. This process requires close
coordination between the contracting office, the finance office, the program office, and the contractor.
Contract closeout is an important aspect of contract administration.

The contract audit process also affects contract closeout on cost-reimbursement contracts. Contract
audits are required to determine the reasonableness, allowability, and allocability of costs incurred under
cost reimbursement contracts. Although there is a preaward audit of the contractor's proposal, there is a
cost-incurred audit of the contractor's claim of incurred costs and a close out audit to reconcile the
contractor's final claim under the contract to incurred costs previously audited. When there is a delay in
completing the cost-incurred and closeout audits, contracting officials often can not complete the
closeout process for many cost reimbursement contracts. Although the FAR does allows agencies to use
quick closeout procedures (desk reviews) to close some cost reimbursement contracts without a closeout
audit, inconsistencies have been noted in the use of the procedures.

It is important that contracting officials have a good working relationship with the agency's auditors and
the cognizant audit agency to accomplish contract closeout under cost-reimbursement contracts.

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CONTRACT CLOSEOUT BEST PRACTICES

CONCERNS BEST PRACTICES
Lack of management attention to Establishing a separate closeout function within the contracting
contract closeout. organization emphasizes the importance of contract closeout.

The best time to concentrate on contract closeout is during the

October to February timeframe when the contract placements
workload may be less.

Using contractor support may be an efficient way to accomplish

contract closeout when in-house resources are limited.

Such administrative functions as creating the closeout file,

soliciting required closeout forms from internal organizations,
obtaining the contractor's release are duties that can be performed
through contractor support as long as the forms are executed and
approved by the contracting official.

Although the contract specialist continues to work with the

contractor through physical completion under "cradle-to-grave"
contract administration, this does not prohibit a separate group
from performing the closeout function.

For civilian agencies entering into agreements with the Defense

Contract Management Command to perform contract
administration and contract closeout functions may be useful when
in-house resources are limited.

Rewarding employees through incentive awards (i.e., on-the-spot

cash awards) for the highest number of closeouts completed is a
good motivation factor.

Using measurements standards such as those prescribed in the

FAR for closing various types of contracts helps to keep the focus
on the closeout effort.

Cross-training in contract closeout is good for contract specialists

as it helps them to understand the importance of writing good
contracts.
Poor Management Information Consider using a management information system with milestones
Systems to monitor the contract to track contract closeout from physical completion through final
closeout process. payment.

Integrating the closeout system with a word processing capability

allows for automatic generation of closeouts letters which speeds
up the closeout process.

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Using contractor support for data entry services may be an

alternative when in-house resources are limited.
Poor coordination between It may be helpful to notify the IG and the cognizant audit agency
contracting activity, inspectors whenever a cost-reimbursement contract is awarded that requires
general (IG), and cognizant audit an incurred cost or indirect cost rate proposal audit. Providing that
agency. information at the time of award helps the audit agency program
future requirements into its workload projections.

Forecasting audit needs and communicating those needs to the IG

and the cognizant audit agency helps to improve working
relationships. Developing an information management system may
be a useful tool to facilitate that process.

Prioritizing audit requirements and communicating these

requirements to the IG and the cognizant audit agency helps in
projecting the audit workload.

Specifically stating in the audit request any special information

that should be included in the audit report makes the report more
useful and improves working relationships between the contracting
office, the IG's office, and the cognizant audit agency.

Using a team approach consisting of contracting officials and audit

staff to determine those contractors that should be audited helps to
forecast audit requirements better.

Sharing such information with the cognizant audit agency as a

listing of prime and subcontracts awarded that are subject to
defective pricing reviews or contracts physically completed but not
closed over three years helps the auditors better to define the audit
backlog, determine audit resources, and prioritize contractor
locations for audits.
Poor coordination between Subsequently, requesting the cognizant audit agency to provide
contracting activity, inspectors such information as the directory of for-profit contractors with the
general (IG), and cognizant audit audit office responsible for the contractor's audit and those
agency. (CONTINUED) contractors that are late in submitting their indirect cost rate
proposals or submitted inadequate proposals helps the contracting
office project its closeout workload.
Large backlog of unscheduled Using quick closeout procedures to the extent practicable helps to
audits. reduce the audit workload. When a determination can be made that
there is no evidence of fraud or waste, the contractor's performance
is good, and there is no history of unallowable costs, then quick
closeout procedures may be appropriate.

Performing risk assessments to determine contractors that should

be audited will help to better manage the audit workload.

Using more fixed price contracts helps to reduce the requirements

for contract audits.

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Encouraging contractors to submit their final vouchers in a timely

manner avoids delays in requesting the final closeout audit under
cost reimbursement contracts.

Using rate checks (labor and indirect cost rate) to the maximum
extent possible instead of full blown audits when such audits
would not add value helps to reduce audit backlog.
Noncompliance with FAR Using the post award orientation session to educate the contractors
provision for submitting Indirect (in particular small business firms) on the requirements for
Cost Rate (ICR) Proposals by contract closeouts and the need to submit ICRs in a timely manner
some contractors delays the audit should help make the closeout process easier.
process.
Avoiding Disputes in Contract In construction, claims sometimes cause closeout problems. An
Closeout. alternative dispute resolution technique known as "partnering"
should be considered. Creating a partnership agreement with the
contractor helps to avoid disputes. Having the partnership
agreement signed by all parties -- the contracting officer, COTR,
and the contractor -- creates a buy-in to the overall goal:
"Completion on time, within budget, and without claims."
Lack of a specific dollar threshold Using specific dollar thresholds for quick closeouts may be
for using quick closeout practicable so long as the government's interests are protected, low
procedures. risk is involved, and indirect rates can be verified.

Knowing the contractor's history of incurred costs, billings, and

performance are additional factors to be considered when
establishing thresholds for using quick closeouts.

Establishing a good working relationship with the finance office

helps in the closeout process. Getting the finance office to provide
a listing of contracts where money will be lost if final settlement
does not occur helps to target attention on those contracts that may
be closed through quick closeout procedures.
Closeout documentation. Always use a checklist and include it in the contract file when
closing contracts. This helps to assure that all actions have been
completed.

CONCLUSION

A good contract administration program is essential to improving contractor performance under federal
contracts. The best practices that have been included in this guidebook is a first step at providing some
practical guidance that should help to improve the contract administration process.

We believe that program and contracting officials need to realize the importance of good contract
administration. Convening a forum to discuss these best practices may help agency components focus
more attention to them and begin using them to help resolve problems they may encounter. Structuring a
contracting administration program by the type of activity, e.g., contract monitoring, voucher review,
contractor performance evaluation, using various levels (Level 1 - proactive, level 2 - active, and level 3
- reactive) may also help to better allocate contract administration resources so that these best practices

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can be useful.

In addition, giving an annual contract administration award to recognize individual and group
accomplishments in contract administration highlights its important to the procurement process. Some
agencies even include contract administration as a performance goal of contracting officials as an
incentive for them to do a good job in this area.

In conclusion, we hope that the best practices included in this guidebook will be useful. Suggestions for
any other best practices in the three areas, in other areas of contract administration, or pertaining to the
contracting process should be forwarded to:

Office of Federal Procurement Policy

Room 9001, New Executive Office Building

725 17th Street, N.W.

Washington, DC 20503

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