Procurement Support Services Sector

Public Services and Procurement Canada

PRACTITIONER’S GUIDE FOR

PROCUREMENT PRICING

Phase 2

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TABLE OF CONTENTS

1.0 INTRODUCTION ..................................................................................................................................... 4

2.0 GUIDE ORGANIZATION: PRICING IN CANADA ................................................................................... 6

2.1 Overview of Key Pricing Considerations ........................................................................................... 8

2.2 Pricing Approach ............................................................................................................................ 11

2.3 Pricing Principles ............................................................................................................................ 12

3.0 KEY PRICING CONSIDERATIONS ...................................................................................................... 14

3.1 Managing Pricing Throughout the Acquisition Lifecycle ................................................................. 15

3.2 Engaging Expert Advice ................................................................................................................. 17

3.3 Documenting and Justifying Key Pricing Decisions in the Contract ................................................ 19

3.4 Developing a Validation Strategy.................................................................................................... 21

3.5 Capturing and Tracking Lessons Learned ...................................................................................... 25

4.0 PRICING APPROACH .......................................................................................................................... 26

4.1 Basis of Payment ......................................................................................................................... 27

4.1.1 Fixed Price ............................................................................................................................... 32

4.1.2 Fixed Unit Rate ........................................................................................................................ 39

4.1.3 Cost Reimbursable .................................................................................................................. 43

4.1.4 Provisional Price Basis of Payment ......................................................................................... 75

4.2 Economic Price Adjustments (EPAs) and Foreign Currency Adjustments (FCAs) ......................... 84

4.3 Ceiling Price and Limitation of Expenditure .................................................................................... 86

4.4 Incentives ....................................................................................................................................... 87

4.4.1 Characteristics ......................................................................................................................... 87

4.4.2 Incentive Types ...................................................................................................................... 90

4.5 Pricing Approach Selection ........................................................................................................ 116

4.5.1 Summary Table of Basis of Payment Types .......................................................................... 117

4.5.2 Summary Table of Incentive Types........................................................................................ 124

5.0 PRICING PRINCIPLES ....................................................................................................................... 128

5.1 Establishing the Cost Base ........................................................................................................... 131

5.1.1 Costing Standard ................................................................................................................. 133

5.1.2 Cost Accounting Practice Submission (CAPS) .................................................................... 134

5.2 Development of an Appropriate Profit ......................................................................................... 136

5.3 Alternative Pricing Strategies ....................................................................................................... 137

6.0 ANNEXES ........................................................................................................................................... 138

ANNEX 1: Firm Price Basis of Payment ............................................................................................. 139

ANNEX 2: Costing Standard .............................................................................................................. 142

ANNEX 3: Contact Information ........................................................................................................... 184

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ANNEX 4: Process Steps for Cost Accounting Practices Submission (CAPS) ................................... 185

ANNEX 5: Discussion Papers ............................................................................................................ 187

Annex 5.1.1 (Discussion Paper - Financial Accounting vs. Cost Accounting) ................................. 187

Annex 5.1.2 (Discussion Paper - Rules-Based Vs. Principles-Based Standards) ........................... 195

Annex 5.1.3 (Discussion Paper - Accrual Vs. Cash Based Accounting) ......................................... 199

Annex 5.1.4 (Discussion Paper - Sales and Marketing) .................................................................. 202

Annex 5.1.5 (Discussion Paper - Executive Compensation and Bonus) ......................................... 211

Annex 5.1.6 (Discussion Paper - Contract Incentives to Encourage and Reward Enhanced Value to

Canada) .......................................................................................................................................... 217

Annex 5.1.7 (Discussion Paper - Measures to Manage Contractor Non-Compliance or Unacceptable

Behaviour) ...................................................................................................................................... 233

Annex 5.1.8 (Discussion Paper - Managing Long-Term Contractual Relationships)....................... 254

Annex 5.2 – Other Annexes ............................................................................................................ 263

Annex 5.2.1 (Discussion Paper – Asset Valuation) ......................................................................... 263

Annex 5.2.2 (Discussion Paper – Transfer Pricing) ........................................................................ 268

Annex 5.2.3 (Discussion Paper – Production Capacity and Indirect Costs Allocation) ................... 275

Annex 5.2.4 (Discussion Paper - Research and Development Costs) ............................................ 283

Annex 5.2.5 (Discussion Paper - Industrial and Technological Benefits Obligations and Value

Propositions – Cost Considerations) ............................................................................................... 296

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1.0 INTRODUCTION

Pricing is a fundamental enabler to the achievement of best possible value in a procurement. Effective pricing

begins with the development of a pricing strategy that closely aligns with the overall procurement strategy to

ensure pricing decisions are in accordance with the procurement’s objectives and priorities. To achieve this

alignment, it is essential that a pricing strategy is developed early on in the procurement process and before

actual sourcing occurs, which will then need to be managed throughout the life of the procurement.

The world of procurement is rapidly changing and evolving and, as a result, the procurement community is

increasingly being called upon to think both differently and more strategically to achieve desired procurement

outcomes and to maximize value for Canadians. As a result, in order to effectively manage pricing it is

important to ensure:

• pricing objectives are aligned with the procurement objectives to maximize the value achieved;

• the pricing strategies are monitored and evaluated throughout the lifecycle of a contract;

• pricing is focused on desired contract performance outcomes; and

• good working relationships are maintained among all stakeholders (e.g., Public Services and

Procurement Canada (PSPC), federal government departments/agencies and contractors).

Purpose and Objectives of Practitioner’s Guide for Contract Pricing

The Practitioner’s Guide for Procurement Pricing (the Guide) is not intended to prescribe pricing to contracting

officers but rather to aid them in the application of their professional judgement when making pricing

decisions. Given that pricing within a contract is highly dependent on the nature of the procurement, the

Guide has been developed to outline both the variety of options available and the flexibility that contracting

officers have in building a comprehensive pricing strategy. For example, in developing a pricing strategy, the

contracting officer would need to consider such things as whether to accept a cost, when and how to apply

one or multiple types of basis of payments and how to include incentives tailored to the specific circumstances

of a given procurement.

In addition to the pricing approaches outlined in the Guide, it is important to stress that contracting officers

are encouraged to employ alternative pricing approaches not currently incorporated in this Guide. In fact, this

Guide outlines a process to share and document procurements that use alternative approaches to those

included in the Guide so that they can be considered in future iterations of this Guide for the benefit of the

entire procurement community.

The Guide is intended to be used as a tool to develop effective pricing. As such, the desired objectives of the

Guide are to:

• provide a better understanding of pricing with the Government of Canada and why it is important.

• provide clear and relevant pricing options available to contracting officers.

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• provide guidance to determine best pricing options, including their associated potential benefits, risks

and related processes based on the nature of the procurement.

• outline the key steps, considerations and tools contracting officers should consider as they develop a

contract pricing strategy.

• provide guidance on key process considerations to help increase the clarity, consistency and

transparency of pricing decisions.

• promote the use of alternative pricing approaches and the recommended process to document and

capture lessons learned.

• introduce the Cost Accounting Practices Submission (CAPS) and how to use it correctly and effectively.

Please note throughout the Guide the term ‘contractor’ will refer to both current and future contractors doing

business with the Government of Canada.

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2.0 GUIDE ORGANIZATION: PRICING IN CANADA

The Practitioner’s Guide for Pricing (the Guide) is applicable for both market pricing and negotiated pricing

as detailed below.

Market Pricing: The price is assessed and established when there exists sufficient competition to obtain more

than one competitive bid and price comparison. It is important to stress that Canada makes every effort to

ensure that the price of goods and services is determined by the market through competition.

Negotiated Pricing: Occurs when a contract requires any type of price negotiation such as pricing a non-

competitive contract, price negotiations in a competitive contract subsequent to the award for specific pricing

aspects, contract amendments, and use of incentives involving costs and contract extensions.

• Cost-Based Pricing: The price is established based on the contractor’s cost plus a profit margin above

the cost.

• Alternative Pricing Strategies: The price is established by applying an alternative method to cost-

based pricing. While the Guide does not contain specific guidance on specific alternatives, it does

contain details in Section 5.3 (Alternative Pricing Strategies) on the process to follow in the event an

alternative strategy is being pursued.

There are instances where price cannot be established through competition. In those situations, cost-based

pricing is most commonly used. With that said, that does not mean that there are not alterative pricing

strategies available to contracting officers.

Understanding How the Guide is Organized

The Guide is organized based on the following three concepts to support the contracting officers in the

development of a procurement pricing strategy:

1) Key Pricing Considerations: are key pricing considerations and practices that should be employed where

applicable when managing pricing throughout each stage of the acquisition lifecycle.

2) Pricing Approaches: are approaches used to determine how a contractor will be compensated and

includes consideration of the basis of payment and incentive options.

3) Pricing Principles: are principles that are to be applied to all scenarios in which price negotiations are

required and involve the establishment of a cost-base, profit levels and price.

Table 1 below outlines the overall structure of the Guide as well as the core concepts presented within the

Guide and their applicability to market and negotiated pricing.

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Table 1: Pricing Elements of the Guide

Market Price

Negotiated Price

Key Pricing

Considerations

• Manage pricing throughout the

Acquisition Lifecycle: monitor,

review and evaluate

• Engage expert advice

• Document key components of

pricing decisions in a contract

• Develop validation strategies

• Capture and track lessons

learned

• Manage pricing throughout the

Acquisition Lifecycle: monitor, review

and evaluate

• Engage expert advice

• Document key components of pricing

decisions in a contract

• Develop validation strategies

• Capture and track lessons learned

Pricing

Approaches

• Basis of payment

• Incentives

• Basis of payment

• Incentives

Pricing

Principles

• The price is assessed and

established through a comparison

to other competitive bids

• Any subsequent price negotiation

requires the application of Pricing

Principles, Negotiated Price

• Establishment of cost-base

• Development of an appropriate profit

• Alternative pricing strategies

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2.1 OVERVIEW OF KEY PRICING CONSIDERATIONS

In order to effectively manage a pricing strategy throughout the acquisition lifecycle and to ensure it

successfully meets the procurement’s objectives, contracting officers should consider:

1. managing pricing throughout the acquisition lifecycle: monitor, review and evaluate.

2. engaging expert advice, as needed.

3. documenting and justifying all key pricing decisions and incorporate them in the contract.

4. developing a validation strategy.

5. capturing and tracking lessons learned.

1) Manage Pricing throughout the Acquisition Lifecycle: Monitor, Review and Evaluate

A pricing strategy should be established early in a procurement and then regularly reviewed, monitored and

evaluated throughout the entire acquisition lifecycle. This is particularly important because changes in

contract requirements, amendments, risk factors, timeframes, original estimates and expectations will all

have an impact on the performance of the pricing decisions made at the outset of a contract.

The regular evaluation and management of pricing strategies within a procurement will ensure that the

requirements of Canada have been met, will help build long-term collaborative relationships with industry,

and are essential to optimizing value to Canada. See Section 3.1 (Managing Pricing through the Acquisition

Lifecycle) for further details and guidance.

2) Engage Expert Advice, as needed

Pricing decisions can be complex and may require that contracting officers engage experts with knowledge

and experience in such areas as:

• the development of pricing strategies;

• benchmarking tools; and

• price validation and technical validation.

For example, for support regarding pricing decisions and the development of pricing strategies, early

engagement of the Price Advisor Group (PAG) within PSPC is recommended. See Section 3.2 (Engaging

Expert Advise) for further details and guidance on when and how to access this expertise.

3) Document, Justify and Incorporate in the Contract

An essential principle to managing a successful pricing strategy is clear documentation of the strategy, the

rationale for the strategy as well as details on how it is intended to be carried out. This would include:

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• a formal record of decision for the key components of the pricing strategy including the selection of basis

of payment;

• incentives;

• profit levels;

• validation strategy;

• limits and parameters on costs, acceptance of costs not generally accepted; and

• any other deviations from current pricing guidance and the cost-benefit analysis carried out in the

decision making process.

Documenting the key decisions related to the pricing strategy and formally incorporating them in contract

documents is essential to be able to seamlessly transition procurement files from one contracting officer to

another, to minimize pricing disputes and to ensure there is a common understanding of the pricing strategy

by all stakeholders. See Section 3.3 (Documenting and Justifying Key Pricing Decisions in the Contract) for

further details and guidance.

4) Validation Strategy

A pricing strategy also requires management of the risk factors in a contract and with a contractor. A validation

strategy should be developed to address a number of potential risks including the:

• reasonability of the price;

• accuracy of cost estimates or costs being claimed;

• actual levels of profit being earned;

• achievement of incentives;

• ability of a contractor’s system to appropriately track costs; and

• ability of a contractor’s system to appropriately track data related to the achievement of incentives.

The validation strategy should be clearly communicated to all stakeholders and can be comprised of various

validation tools such as should-cost analysis, benchmarking and assurance services.

It is recommended that contracting officers seek advice and guidance from the Assurance Services Group to

develop an effective validation strategy. The Assurance Services Group is a unit within PSPC’s Procurement

Support Services Sector devoted to providing contracting officers with advice on Pricing.

See Section 3.4 (Developing a Validation Strategy) for further details and guidance on when to access this

expertise.

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5) Capturing and Tracking Lessons Learned

Capturing and tracking lessons learned is vital to ensure the guidance provided remains relevant and

evergreen, and to continuously inform contracting officers of opportunities and best practices in procurement

pricing. Contracts applying alternative pricing strategies should be sent to the Procurement Support Services

Sector (PSSS). PSSS will review contracts and supporting information for considerations of future guidance

and lessons learned to ensure the Guide remains relevant and evergreen.

Please Note

• When an alternative pricing strategy is used in a contract please provide a copy of the contract

detailing the strategy to the Procurement Support Services Sector by email at:

(TPSGC.padgamtp-appbipm.PWGSC@tpsgc-pwgsc.gc.ca)

• See Section 3.5 (Capturing and Tracking Lessons Learned) for further details and guidance.

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2.2 PRICING APPROACH

The Pricing Approach determines how a contractor will be paid for the services or goods provided. The

approach requires consideration of the various types of basis of payment in conjunction with the use of

incentives in order to strategically align pricing to the priorities and objectives of a procurement. See Section

3.4 (Developing a Validation Strategy) of the Guide for further details on the pricing approaches available.

Basis of Payment

The basis of payment in a contract defines how a price will be built to compensate a contractor in a contract.

It reflects such things as the commodity, the duration of the contract and how adequately the requirement is

defined.

The Guide outlines the basis of payment options that are available to contracting officers (fixed price, fixed

unit rate, cost reimbursable, and provisional price). Specifically, Section 4.1 (Basis of Payment) of the Guide:

• defines each basis of payment;

• outlines when to consider using a particular basis of payment;

• identifies the factors contracting officers should consider in selecting the most appropriate basis of

payment; and

• provides examples of how a particular basis of payment functions in practice.

Incentives

Based on the nature of the procurement, an incentive can act as a powerful tool that financially or non-

financially motivate or encourage contractors to achieve higher levels of performance to maximize the value

to Canada.

When appropriately structured, incentives can allow Canada to share in cost savings or focus the contractor

on the areas of critical importance to a procurement such as costs and technical performance and schedule

performance. See Section 4.4 (Incentives) for further details and guidance.

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2.3 PRICING PRINCIPLES

As previously mentioned, there are instances where a contract will require price negotiation (e.g., where

competition is not possible or where price negotiations take place in competitive contracts to incorporate

amendments and contract extensions). Cost-based pricing is most commonly applied in those types of

situations. Alternative approaches, however, are also available.

Section 5 of the Guide discusses the establishment of the cost-base and the development of a profit price.

Section 5.3 provides details on the process to follow in the event an alternative strategy is being pursued.

Establishment of the Cost-Base

Establishing a cost base is the first step in building the price for cost-based pricing. The Guide is structured

to assist contracting officers through the process of determining an acceptable cost, which requires careful

consideration of the following factors: Attribution, Appropriateness and Reasonability. These factors are

outlined in the Costing Standard. The process outlined in the Costing Standard, Cost Accounting Practices

Submission (CAPS) is designed to assist contracting officers in exercising their professional judgement to

assess the acceptability of the costs in the contract. See Section 5.1 (Establishing the Cost Base) and Annex

2 (Costing Standard) for further details and guidance.

Development of a Profit

Once the cost-base is established, the next step is to develop an acceptable profit. Profit refers to the financial

gain achieved by the contractor to provide goods and services to Canada. Section 5.2 (Development of an

Appropriate Profit) is in line with the current guidance in the Supply Manual (Section 10.65) which walks

through the profit development process using the weighted guidance approach.

Alternative Pricing Strategies

The Guide currently lays out Pricing Principles related to cost-based pricing. Alternative pricing measures

such as outcome based pricing or value-based pricing may be pursued. In the event an alternative pricing

strategy is used, please provide a copy of the contract and contract details to the PSSS (TPSGC.padgamtp-

appbipm.PWGSC@tpsgc-pwgsc.gc.ca). This will ensure lessons learned from the use of alternative

approaches are incorporated in future iterations of the Guide.

Figure 1 below provides an overview of these pricing elements and of their interconnectivity. More detailed

descriptions are provided in subsequent sections of the Guide.

Figure 1: Procurement Pricing In Canada

Pricing

Approach

Value to Canada

Contract

Type

Determination

Market

(Competitive)

Negotiated

(Competitive & Non-Competitive)

Basis of

Payment

Non-Financial

Incentives

Cost Based

(Compliance with Costing

Principles and Profit Policy)

Incentives

Market Based

(Competitive Market/Multiple

Bidders)

Alternative Base for Pricing

Building a

Price

Fixed Price

Cost

Reimbursable

Provisional

Price

Alternative

Approaches

Award Fees

Schedule

Performance

Key Pricing

Considerations

Manage pricing

throughout

acquisition

lifecycle

Engage expert

advice

Document and

incorporate

pricing decisions

in contract

Develop

validation

strategy

Pricing

Principles

Technical

Performance

Fixed Unit

Rate

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3.0 KEY PRICING CONSIDERATIONS

Key pricing considerations are in place to ensure that a pricing strategy is effective. To that end, a pricing

strategy must support the achievement of a procurement’s objectives in a way that delivers value to Canada.

The pricing objectives need to be agreed upon and clear to all stakeholders.

It is also important to stress that pricing will need to be reviewed, monitored and evaluated throughout the

life of the procurement. A pricing strategy established early in the acquisition lifecycle, for example, may not

over time operate as initially intended or it may not be effective or efficient as needed later on in the life of a

procurement. It is for these reasons, among others, that it is important for contracting officers to incorporate

the following five key pricing considerations into their ongoing management of a given procurement:

3.1 Managing Pricing Throughout the Acquisition Lifecycle: Monitor, Review and Evaluate

3.2 Engaging Expert Advice

3.3 Documenting and Justifying Key Pricing Decisions into the Contract

3.4 Developing a Validation Strategy

3.5 Capturing and Tracking Lessons Learned

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3.1 MANAGING PRICING THROUGHOUT THE ACQUISITION LIFECYCLE

Pricing should be managed throughout the acquisition lifecycle in order to ensure requirements are being

met as outlined in the contract and that objectives of both parties remain aligned with desired procurement

outcomes. Managing pricing through the life of a procurement serves to motivate contractors to fulfill

contractual requirements in a cost effective, timely and quality manner. An illustration of the acquisition

lifecycle is presented in Figure 2 below.

Figure 2: The Acquisition Lifecycle

The pricing strategy applied should be continually monitored and evaluated for compliance and continued fit

to the procurement objectives. Modifications in procurement objectives and priorities could require

modifications to the pricing strategy.

A number of risk factors can impact how often and which pricing decisions should be reviewed and revisited.

These include performance, market, financial and business risks. In addition, managing pricing throughout

the acquisition lifecycle becomes increasingly important when it comes to longer-term contracts because

there is a greater risk of variation of these factors. The lack of effective price management across the

acquisition lifecycle can have significant and undesirable consequences such as:

• overpayments;

• poor contractor relationships;

• increased risk of contractor insolvency; or

• failure to deliver.

For example, if a contract is to be amended or extended, the factors applied in the determination of the

original pricing strategy chosen may have changed and another pricing strategy may now be more

appropriate. A cost reimbursable basis of payment may have been selected initially for a contract due to the

number of unknowns in the requirement. If the requirement, however, becomes well known over time then

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consideration could be given to introducing a fixed basis of payment and/or incentives. Additional information

and tools for managing pricing throughout an acquisition lifecycle can be found in the following discussion

papers:

• Annex 5.1.7 - Discussion Paper: Measures to Manage Contractor Non-Compliance or Unacceptable

Behaviour

• Annex 5.1.8 - Discussion Paper: Managing Long-Term Contractual Relationships

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3.2 ENGAGING EXPERT ADVICE

The intention of the Guide is to assist contracting officers in applying their professional judgement to

procurement pricing. Pricing can be complex and may require the involvement of expert advice. For example,

expertise may be required to determine the

reasonability of the technical inputs included in

the pricing estimate, to conduct a benchmarking

exercise or to perform a should-cost analysis on

a new good or service.

Engaging Price Advisors

Contracting officers can draw upon the expertise

offered within PSPC by the Price Advisor Group

(PAG). The engagement of PSPC’s price

advisors is highly recommended to support

pricing decisions and the development of pricing

strategies early on in the acquisition lifecycle. The advice of a price advisor can be acquired in accordance

with both the Directive on the Use of Cost and Price Analysis and the Guideline on the Use of Cost and Price

Analysis Services .

Please note that it is mandatory to contact PAG for:

• all potential sole-source contracts over $1,000,000 (this includes all competitive contracts over

$1,000,000 with only one responsive bidder);

• any potential contracts or amendments that brings the total cost of a contract (competitive or non-

competitive) to over $10,000,000; or

• any potential contract over $1,000,000 with a basis of payment other than fixed or firm price (e.g., costs

and level of effort are variable and/or unforeseen).

As soon as it is known that any of the above conditions exist, PAG must be contacted to determine if any

further action is required early in acquisition lifecycle. PAG services that may be required:

• Before contract award to:

• assess the price proposal and costing rates negotiated for billing purposes.

• assess the proposed price or rate under the price/rate certification.

• assess the price support.

• provide advice on applying specific economic price adjustments.

Did You Know?

• Contracting officers can draw on expert advice

from the:

Price Advisor Group (PAG), within the

Procurement Support Services Sector

• Please see Annex 3 for contact information.

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• After contract award to:

• negotiate annual costing rates for billing purposes.

• determine reasonable and supportable pricing on add work requirements or change proposals.

• determine if further work by government auditors is required where contract rates are subject to

negotiation or where contract costs rely on the contractor’s time recording system.

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3.3 DOCUMENTING AND JUSTIFYING KEY PRICING DECISIONS IN THE CONTRACT

Another key pricing consideration is documenting pricing decisions in the contract. It is essential to have a

transparent approach to documenting the pricing strategy, the pricing approach and the decisions with

respect to the pricing principles. It is also important to ensure that the documentation be thorough and

comprehensive enough to enable others to understand how the pricing strategy was intended to function.

This means maintaining a formal record of decision of the key components within the pricing strategy

including:

• the selection of basis of payment;

• incentives;

• profit levels,

• the validation strategy;

• limits and parameters,

• acceptance of costs not generally accepted; and

• any other deviations from current pricing guidance and the cost-benefit analysis carried out in the

decision making process.

The contracting officer must ensure to keep a record of all assumptions, rationales, agreements and

challenges related to the pricing of a contract.

Process Steps

The following documentation is required from the contracting officer:

I. Identify the pricing strategy used.

II. Explain the reasons for the pricing strategy.

• Contracting officers are responsible for determining fair and reasonable profit. Supporting

documents and any justifications (e.g., options analysis, profit calculations) that were used to

establish the pricing decision should be retained and documented in the procurement file, business

or other decision documents. This should be done for all contracts as well as contract amendments.

• This will support fairness and transparency and clearly document the intent and rationale for the

contracting officer’s pricing decisions. This supports sound stewardship, responsible contract

management and, ultimately, the long-term success of the contract. This will also provide

contracting officers who may be responsible for the contract in the future with access to

procurement files that provide a clear understanding of the reasons behind past contract pricing

decisions.

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• Explain how the pricing was calculated or determined, if applicable.

In cases, however, were determining profit differs from the guidance provided in Section 5.2 (Development

of an Appropriate Profit) or where an alternative pricing strategy is applied Section 5.3 (Alternative Pricing

Strategies), contracting officers will need to document and submit:

• an explanation of how the pricing is intended to work.

• an identification, description and estimate of expected costs and benefits of the pricing.

• evidence or comparative information from other jurisdictions/sectors in support of the proposed pricing

practice, if available.

• an identification of any limits in the application of the pricing practice such as timeframes or conditions

that apply.

• a brief description, as applicable, on plans and approaches to:

• measure and track whether the contractor achieved the conditions in the pricing provisions.

• validate whether the contractor has achieved the conditions that activate the pricing provisions,

including gain-sharing and non-financial performance objectives.

• adjust or recalibrate contract pricing for multi-year contracts, including performance objectives.

• review and assess the effectiveness of the pricing practice and make recommendations for its use

by others.

Incorporating Pricing into a Contract

Once the pricing is appropriately authorized through standard procurement approval process, contracting

officers will need to include all appropriate clauses for the basis of payment chosen and to ensure all aspects

of the price are clearly documented in the contract (e.g., in an Annex). A detailed breakdown of the cost,

profit and incentives should be included in the contract Basis of Payment section, where applicable.

Documentation on how the price will be administered throughout the lifecycle of the contract is also required,

including the validation strategy and pricing strategy review checkpoints. Price administration/management

will outline, for example, how often the price will be revisited, how the incentives are intended to work and

when they will be evaluated and awarded. This reduces the risk of future disputes arising due to vague terms

and conditions.

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3.4 DEVELOPING A VALIDATION STRATEGY

A validation strategy seeks to:

• manage risk in a contract;

• better understand the nature of the costs being

claimed;

• establish the credibility of the amounts being

charged; and

• validate the achievement of incentives.

It is important that the validation strategy be established early on in the acquisition lifecycle and prior to both

Request for Proposal or contract negotiation. Please note, the Assurance Services Group is available to

assist contracting officers in developing a validation strategy.

The validation strategy should assess the risks in the contract pricing strategy and specific risks related to

the contractor to properly assess the areas within the contract that will require validation and when the

validation should be carried out. It will establish the level of assurance work that is required to perform the

validation. For example, higher dollar value, higher risk contracts may require the Assurance Services Group

to coordinate the validation work where as other areas of the strategy may be carried out by contracting

officers or through contractor attestations.

The timing of the validation strategy needs to be determined upfront because validation should be performed

at specific times based on the contract’s basis of payment and use of incentives. The timing of the validation

as well as who will carry out the validation requirements and how the results of the validation findings are

intended to be handled should all be laid out in the validation strategy. The strategy should be clearly

communicated to all parties, including the contractor and client department.

Pricing Approach Considerations

The validation requirements and timing will vary depending on the basis of payment and use of incentives.

Detailed considerations relating to validation strategies for different types of basis of payments are listed in

Table 2 below.

Did You Know?

• A validation strategy can be developed with

the use of the expertise from the:

 Assurance Services Group (ASG) within the

Procurement Support Services Sector

• Please see Annex 3 for contact information.

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Table 2: Validation Strategy Considerations

Pricing

Approach

Validation Strategy

Considerations

Fixed Price

• In the case of a negotiated fixed price contract, considerable risk upfront can exist

when establishing the initial contract because it is very difficult to assess the

credibility of the costs and price proposed at the onset without validating. In light of

the fact the price is fixed for the life of the contract, validating pricing factors in

advance of signing a contract is imperative.

• A price/cost validation exercise should be completed prior to contract finalization for

any fixed price to ensure prices are appropriate, attributable and reasonable.

• Once the price is fixed and incorporated into the contract, it is very difficult to modify,

further highlighting the importance of validation upfront.

• Price validation methods differ depending on how the price of the contract was

determined:

• A competitive process with more than one compliant bidder. Multiple bids will

validate the fairness of the price.

• Available market-based data to compare to the price, in the event there is only

one bid.

• Cost validation for a cost-base price build-up, typical for sole sourced contracts.

• In the event price cannot be validated through competition or the market, the price

is developed from a validated cost base with a profit calculation (See Section 5.2:

Development of An Appropriate Profit for more information).

• The level of validation required for a cost base is contingent on the level of

complexity. Contracting officers are encouraged to seek advice and expertise, as

required, from the PSSS.

• For additional information, see Annex 5 (Discussion Paper Techniques to Assess

the Acceptability of Contractor Price Proposals – To be released soon)

Cost

Reimbursable

• In a cost reimbursable contract, price validation is required once costs have been

incurred to ensure claims are consistent with the terms and conditions of the

contract and that they are acceptable.

• In a cost reimbursable contract, it is equally important to develop a validation

strategy to ensure the costs claimed and accepted by Canada are in line with

Canada’s contract cost principles 1031-2 and the Costing Standard (ANNEX 2)

23 | Page Public Services and Procurement Canada September 30, 2019

• It is also important to establish what costs are “acceptable” to Canada as early on

in a contract as possible.

• Agreeing with the contractor in advance of the acceptability of costs and accounting

practices with the Annex 2 (Costing Standards). This minimizes the risk of disputes

related to costing later in a contract.

• The validation strategy for a cost reimbursable contract should include an

assessment of acceptable costs in advance of the contract being signed or at the

time of the negotiations by using CAPS.

• A timely validation schedule can then be established to ensure the costs being

claimed are in line with those deemed acceptable at the outset of the contract. This

can be based on findings of a formal or informal audit. The audit provides the basis

for certification that the price is reasonable.

• More information on validation strategies can be found in Section 3.4 (Developing a

Validation Section)

Provisional

Pricing

• Provisional pricing is a basis of payment with a planned move from cost

reimbursable to fixed price, as the degree of certainty related to the contract

requirements increases.

• Validation is required in a provisional price contract, as the first portion of the

contract operates in a cost reimbursable environment. The validation strategy for

the cost reimbursable portion must include an assessment of acceptable costs

actually incurred. .

• The validation strategy, timing and plan must be agreed upon in advance of the

contract commencing, and must be well documented.

• The results of the cost validation exercise will be used to set the fixed price of the

contract moving forward.

Incentives

• Validation is also important to determine and measure incentives that are in place

in the contract.

• To ensure information tracking for incentives is credible (e.g., deliverables,

performance indicators, and costs), it is important to, first, ensure the contractor has

appropriate system controls (for example, accounting system and labour time

recording system audit).

• Determination of the sufficiency of controls should be included in the validation

strategy for the contract.

24 | Page Public Services and Procurement Canada September 30, 2019

• The validation strategy must detail a schedule and plan for validating the

achievement of the incentives laid out in the contract.

Validation: Value Added Information

In addition to validating the actual costs incurred in a contract, the credibility of a contractor’s systems and

the achievement of incentives, there is considerable value in the information received from a validation activity

on the nature of the costs being incurred on a contract and profit being earned.

Validation can also be used to inform on the implementation of the pricing strategy, and to gain knowledge

on how the costing and pricing of a contract is actually working. This information helps with the decision

related to the pricing of amendments, follow-on contracts or changes required. The timely analysis of financial

information, costs and systems can help to better inform contracting officers and to support them in making

sound decisions.

In terms of contract pricing, the information provided through validation can be valuable for future pricing

decisions as well as serve as a conduit for sharing lessons learned on pricing moving forward and to help

identify opportunities for improvement.

Validation Tools: Should-Cost Analysis/Benchmarking

Should-cost analysis is a process for determining what a good or service might reasonably be expected to

cost based on a separate cost estimate and/or an objective assessment of the contractor’s operations to

identify and correct for any inefficiencies. If should-cost analysis/benchmarking is determined to be beneficial

and feasible (e.g., benefits outweigh the costs, availability of data and expertise), it could be used to assess

or establish a price.

For additional information, see Annex 5 (Discussion Paper: Techniques to Assess the Acceptability of

Contractor Price Proposals – To be released soon).

25 | Page Public Services and Procurement Canada September 30, 2019

3.5 CAPTURING AND TRACKING LESSONS LEARNED

Capturing and tracking lessons learned is vital to ensure policies, guidance, and training remain evergreen

and that contracting officers are continuously informed of opportunities and best practices on contract pricing.

Please Note

• For contracts valued over $20 million that deviate from the guidance or employ innovative pricing

strategies, the designated contracting officer must contact the Procurement Support Services

Sector (PSSS), once the contract has been approved. Please see Annex 3 for contact information.

• To enable PSSS to follow-up, please provide the contract number, contract name and contact

information.

• PSSS can provide instructions on how to securely submit a copy of the justification to PSSS.

Why is this important?

• This information will be used by PSSS to learn from the experiences of contracting officers and to

enhance consistency across procurements by updating this guide.

• Lessons learned will be tracked and shared to facilitate stakeholder development and the

continuous improvement of the pricing guidance and associated strategies and processes.

26 | Page Public Services and Procurement Canada September 30, 2019

4.0 PRICING APPROACH

The pricing approach is a key element in establishing a contract price. The pricing approach determines how

a contractor will be compensated for the provision of goods and services. This includes deciding the

appropriate basis of payment in combination with the use of incentives, where appropriate.

The goal of the pricing approach is to align contract pricing with the procurement’s primary goals and

objectives. The pricing approach includes:

• Determining the appropriate basis of payment, in combination with incentives (if appropriate);

• Determining profit levels;

• Selecting payment schedules and contract terms and conditions related to pricing;

• Driving the achievement of value in a procurement as defined by the buyer;

• Balancing the risks and uncertainties between Canada and the contractor; and

• Encouraging both efficient and economical performance within the contract.

Section 4.1 (Basis of Payment) and Section 4.4 (Incentives) are meant to help support contracting officers in

determining a pricing approach appropriate for a given procurement.

Section 4.5.1 provides Summary Tables of Basis of Payment Types and Section 4.5.2 provides Incentive

Types at the conclusion of the Pricing Approach section.

27 | Page Public Services and Procurement Canada September 30, 2019

4.1 BASIS OF PAYMENT

What is a Basis of Payment?

A basis of payment is the base component of the pricing approach. It establishes the structure of the pricing

arrangement that can be stand-alone or be paired with incentives, where appropriate.

The basis of payment can and should be adapted according to the following:

• Degree and timing of the responsibility/risk assumed by the contractor for the costs of performance;

• Amount and nature of the profit offered to the contractor for achieving specified standards or goals;

• Amount and nature of the incentive offered to the contractor for exceeding specified standards or goals.

Factors to Consider

Depending on the nature of the procurement, one or many types of basis of payment can be incorporated

into a contract in conjunction with a combination of incentives provided it is appropriate to achieve best value.

• In the case of provisional pricing, which

will be discussed later in this document, a

contract can switch from one basis of

payment to another after set parameters

are met.

• In other cases, a contract could have

multiple aspects with different levels of

certainty and risk, with each aspect

having its own basis of payment.

While the basis of payment options will be

discussed in detail in Section 3.1 (Managing Pricing throughout the Acquisition Lifecycle), selecting a basis

of payment that is appropriate for a contract requires careful consideration, measurement and assessment

of the risk factors and uncertainties. It is also important to note that the basis of payment option has an impact

on the transfer of risk between Canada and the contractor.

Table 3 below provides the areas that need to be considered in determining a basis of payment.

Did You Know?

• A contract need not be confined to a single basis

of payment.

• Provided it is appropriate to achieve best value,

one or many types of basis of payment can be

incorporated into a contract and can even be

used in conjunction with a combination of

incentives.

28 | Page Public Services and Procurement Canada September 30, 2019

Table 3: Consideration for Pricing Approach

The questions outlined below will help you determine which Pricing Approach is suitable for your procurement

and whether or not incentive options can apply.

Areas of

Consideration

Questions to Consider

Clarity of scope and

requirements

• Does the good or service have clearly established criteria?

• Is the good or service commercially available?

• Is this a complex procurement where the requirements are not well known?

• Are there uncertainties related to the development or implementation of the

good or service that could impact the achievement of contract requirements?

• Does the good or service being acquired have very specific requirements that

have not been done or tested before?

• Is the requirement of an urgent nature?

Market Forces

• What is the degree of market competition?

• Are costs subject to potential fluctuations in material availability and labour

costs?

Contract Duration

• Is the duration of the requirement/contract expected to be short-term?

• Is the requirement/contract delivered over a longer period of time?

• Is the contract for a short period of time with no possibility of extension?

• Is the initial contract for a short period of time but there is a possibility of

extensions?

29 | Page Public Services and Procurement Canada September 30, 2019

Areas of

Consideration

Questions to Consider

Price Validation

• To what extent can price analysis provide for a reasonable pricing standard?

(e.g., availability of historical cost and pricing data)

• Is it possible to conduct a cost analysis including an assessment of the impact

of uncertainty and reasonable allocation of cost responsibility to the

contractor?

• Based on past experience with the contractor, has the contractor been able to

provide consistent and accurate cost estimates?

• What is the extent and availability of comparable market prices, benchmarks

and should-cost analysis?

• What are the impacts of concurrent contracts and their pricing arrangements?

Contractor

Readiness

• Is the contractor capable of performing the requirements of the contract? (e.g.,

skills, knowledge)

• Is the contractor financially stable and able to remain operational throughout

the duration of the contract?

• Is the contractor able to perform the requirements of the contract within

budget? (e.g., cost control/containment)

• Is the contractor’s accounting system able to support the timely development

of data related to costing and incentive targets in the manner outlined in the

proposed contract?

• Does the contractor plan to subcontract none, some or the bulk of the work

under the contract to another party?

Applicability of

Incentives

• Are there significant concerns related to cost controls?

• Is there measurable and justifiable value in rewarding performance superior

to that of the base standards established in the statement of requirements?

• Will the contractor achieve the target performance criteria required without an

incentive?

30 | Page Public Services and Procurement Canada September 30, 2019

Basis of Payment Types

There are four primary basis of payment:

• Fixed price;

• Fixed unit rate;

• Cost reimbursable; and

• Provisional price.

The Table 4 below provides a description of these basis of payment.

Table 4: Basis of Payment Types

Section

Basis of Payment

Description

4.1.1

Fixed Price

Note: The previous

firm price basis of

payment has been

replaced by the

fixed price basis of

payment.

Refer to Annex 1 for

details of the

changes from firm

price to fixed price

Sets a total fixed price for the delivery of a good or service for the

duration of a contract regardless of actual costs incurred. Options

include:

• Fixed Price Competitive: Price is established by market

competition with more than one bidder.

• Fixed Price Non-Competitive: Price is negotiated at the outset

of the contract or in an amendment.

• Fixed Price subject to Economic Price Adjustment: Price

includes the ability to adjust for significant fluctuations of price

outside of Canada and the contractor’s control.

4.1.2

Fixed Unit Rate

Note: Fixed time

rate is a form of

fixed unit rate.

Fixed Unit Rate: Calculates a set amount (which typically includes

direct costs, indirect costs (overhead charge) and profit), which is

charged based on a fixed rate and the actual volume of units

purchased.

31 | Page Public Services and Procurement Canada September 30, 2019

Section

Basis of Payment

Description

4.1.3

Cost Reimbursable

Reimburses a contractor for all acceptable contract costs incurred,

typically up to a set amount. Options include:

• No Fee: Allows for repayment of actual costs incurred only.

• Fixed Fee: Adds a specific profit amount to the costs incurred.

• Target Cost: Provides for a sharing formula between the

contractor and Canada of cost savings achieved or costs

exceeding the target. A form of cost reimbursable contract with

greater cost controls.

• Fee Based on Actual Costs: Adds a variable amount of profit

based on the costs incurred.

4.1.4

Provisional Price

Provisional Price: commences by using a cost-reimbursable basis of

payment with set parameters and then moves to a fixed price basis of

payment within the contract term, as a function of requirement and

cost certainty.

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4.1.1 FIXED PRICE

Definition

Fixed price provides price certainty throughout the life of a contract. In a fixed price contract, the contractor

is paid a definite sum of money for carrying out the work regardless of the costs incurred, resulting in the

following factors:

• Risks related to cost fluctuations and resulting profits or losses are fully borne by the contractor.

• A higher profit rate is typically built into the price to compensate the contractor for taking on the risk of

fluctuating costs, as detailed in 4.4 (Incentives).

• Contractors are encouraged to control costs and maximize efficiency because all resulting savings

impact their profit levels. This can result in stronger performing contractors who are better able to

compete in the marketplace.

• There is generally a lower administrative burden in a fixed price contract over other basis of payment.

For example, while a contracting officer may want to validate estimated costs before contract award,

validation of actual costs is not required for a fixed price contract.

Factors to Consider

• A fixed price basis of payment is new in Canada (refer to Annex 1 Firm to Fixed Price Basis of

Payment for details on the changes).

• A competitive fixed price is the optimal basis of payment for achieving value because it is based on

business profit motives. With multiple compliant bidders, the contracting officer is generally afforded a

high degree of comfort that the price being fixed is fair market value.

• It is important to note that a fixed price basis of payment for non-competitive contracts is different from

the previously available firm price basis of payment because:

o Price can only be fixed with strong certainty, assurance and validation of estimated requirements,

costs and profit.

Please Note

• A fixed price basis of payment is a new basis of payment in Canada and has been established to

replace the firm price basis of payment.

• See Annex 1 for details of the changes from the firm price to fixed price basis of payment.

33 | Page Public Services and Procurement Canada September 30, 2019

o There is no Discretionary Audit clause in a fixed price contract, which means that once a contract is

signed, the contracting officer no longer has the ability to validate the costs and profit being earned

on a contract during the contract or at contract completion for the purposes of excess profit recovery.

o The longer the duration of a fixed price contract, the greater the risk that the cost base for pricing will

not represent actual costs.

When Should You Use the Fixed Price Basis of Payment?

Due to the fact that a fixed price contract results in the price being set for the duration of the contract, it is

important to consider this basis of payment when:

• The contracting officer has a significant level of assurance that the price being fixed is fair and will

not result in unreasonable profits being paid by Canada. This assurance can be obtained through:

• A competitive procurement with multiple bidders, which allows the market to set the price.

• Sufficient benchmarking and should-cost information to validate the price.

• Available historical data on costing that is robust enough to be able to validate prior to fixing the

price exists. With a follow on contract, for example, assurance services can be performed on

the costs and profit of the previous contract to establish a fixed price in the follow on contract.

• The requirements, scope of work and outputs to determine the level of effort are known, clearly

defined and are unlikely to change. (e.g., where the relevant technology/industry/platform/service

is mature or proven).

• The contract duration is short- to medium-term to ensure that:

o The price would not need to include additional profit premiums to account for long-term

requirements and cost uncertainties.

o The contracting officer has a reasonable level of assurance that the price will still be

reasonable and of value to Canada in the later years of the contract given the potential for

technology changes and process improvements.

• The schedule is relatively certain and considered achievable.

• It is appropriate for the contractor to bear the risk of cost uncertainty.

34 | Page Public Services and Procurement Canada September 30, 2019

When Should You Not Use the Fixed Price Basis of Payment?

A fixed price basis of payment may not be appropriate for high risk procurements involving contracts with

highly uncertain or variable scopes (e.g., cutting edge, untested or developmental technology). Using a fixed

price basis of payment in these situations may result in:

• Contractors building a significant contingency (risk premium) into the contract price, which ultimately

results in a higher overall price that no longer provides value for money.

• Contractors struggling to perform the agreed work (for the fixed price).

o This may result in a need to renegotiate price, scope and/or schedule requirements, resulting in the

contract operating like a cost reimbursable contract, losing the benefits of a fixed price contract,

while the contractor is being paid higher profit premiums associated with fixed pricing.

o This may also result in placing at risk delivery of contracted outcomes and/or compromising the

capability (including safety and quality) as the contractor may look to ‘cut corners’ in an attempt to

minimize costs and preserve profits.

Example: Profitability of a Fixed Price Contract

Canada negotiates a fixed price contract for $110,000 which is composed of $100,000 of validated cost

estimates plus a 10% profit, or $10,000. The profitability can be expressed by the line graph below.

-40

-20

100

120

0 20 40 60 80 100 120 140

Profit

(in thousand of dollars)

Costs

(in thousand of dollars)

Fixed Price Contract

Cost = Fixed Price

110

Estimated Cost : $ 100,000

Profit (10%) 10,000

Fixed Price: $ 110,000

35 | Page Public Services and Procurement Canada September 30, 2019

Consider the following scenarios:

• If the contractor incurred costs of $110,000, which is equal to the fixed price, the contractor’s profit is nil.

In other words, the contract was not profitable for the contractor.

• If, however, the actual costs incurred by the contractor are $90,000, the contractor’s profit would be as

follows:

o Fixed price = $110,000

o Actual Contractor Costs = $90,000

o Profit = $20,000

In this case, due to cost efficiencies, the contractor’s profit is $10,000 ($20,000 - $10,000) more profitable

than originally negotiated.

• If the actual costs incurred by the contractor are $120,000, thereby exceeding the negotiated fixed price,

the contractor will be in a loss position, as follows:

o Fixed price = $110,000

o Actual Contractor Costs = $120,000

o Loss = $10,000

It is important to note that the profitability of a fixed price contract is not limited. In other words, the more cost

efficient a contractor is in performance of the work, the more profitable the contract is, and conversely, the

greater the amount by which the actual costs exceed the fixed price, the greater the loss the contractor incurs.

Process Steps

Process Overview

Document Decision to Use

Fixed Price Basis of

Payment

• Decision on which basis of payment would be most applicable for the

requirement should be documented in the procurement file.

Establish the Cost Base (if

applicable)

• To establish the cost base, follow Section 5.1 Establishing the Cost Base

and for profit rate calculations follow Section 5.2 Developing an

Appropriate Profit.

• For non-competitive contracts, validation prior to contract award is

necessary to ensure that cost estimates are reasonable and that the

36 | Page Public Services and Procurement Canada September 30, 2019

contractor’s financial systems, which support the estimates, are

sufficient and reliable.

Determine the Price

• Options to determine the price include the following:

o A competitive process with more than one compliant bidder;

o Available market-based data; or

o Costs plus profit.

Validate the Price Prior to

Contract Award/Contract

Extension

Once the price is fixed and incorporated into the contract, it is very difficult

to modify, further highlighting the importance of validation prior to contract

award.

• In the case of a negotiated fixed price contract, validating the credibility

of the costs and price proposed is necessary to ensure the negotiated

price is fair and reasonable to Canada, particularly given the fact that

the price is fixed for the life of the contract.

• A price/cost validation exercise should be completed prior to contract

award or contract extension for any fixed price to ensure prices are

appropriate, attributable and reasonable.

• Price validation methods differ depending on how the price of the

contract was determined:

• Generally in a competitive process with more than one compliant

bidder, multiple bids will validate the fairness of the price.

o In a non-competitive or competitive process with only one

compliant bidder price validation might be based on available

market-based data to compare to the price; and/or cost validation;

and a reasonableness assessment of proposed profit. If the above

elements are lacking, then a fixed price basis of payment may not

be appropriate.

• The nature and level of validation required for a cost base is contingent

on the level of complexity of costing and dependency on the

contractor’s accounting systems. Contracting officers are encouraged

to seek advice and assistance, as required, from the Assurance

Services Group within the Procurement Support Services Sector.

• Options for Validation:

37 | Page Public Services and Procurement Canada September 30, 2019

There are two different bases for prices that will affect how a contracting

officer approaches price validation for a procurement. They are:

1. Market based prices

 Competitive: The prices submitted by suppliers in response to a

competitive solicitation, where multiple bids are received, are

considered market based prices.

 Non-competitive (Negotiated): If the contract to be awarded results

from a non-competitive solicitation and there are similar or

comparable commercial goods or services available in the market

that match the requirement, the commercial price may be suitable

as a proxy of the market price, plus or minus any adjustments to

reflect any variations in the requirement.

 A price determined by the market for competitive contracts is the

preferred basis for fixed price contracts and should always be used

for requirements where there is a commercial/market price available

for setting a price or as a basis for price negotiation.

2. Cost-based prices

 Development of cost-based prices is based on estimated costs to

carry out the work. This cost base is established based on the sum

of reasonable estimates for the cost elements which support the

performance of the work.

 The underlying assumptions include:

o The contractor is competent and capable of performing the

work;

o Its business processes are up-to-date/cost-effective; and,

o The estimates of inputs required are reliable.

 Historical data from previous contracts may provide comfort that

estimates of inputs are reasonable and sufficient to establish a cost

base for pricing.

 Depending on the value and complexity of the requirement, technical

specialists with industry experience may be required to establish a

reliable estimates of inputs required to complete the work.

 Guidance on the acceptability of the costs can be found in the

Standard Acquisition Clauses and Conditions Contract Cost

Principles (SACC 1031-2) and Section 5.1: Establishing the Cost

Base of this guide.

38 | Page Public Services and Procurement Canada September 30, 2019

 Once the cost base has been established, a reasonable profit may

be negotiated and applied to the cost base. The profit should be

negotiated in accordance with Section 5.2 Development of an

Appropriate Profit.

Incorporate Pricing into

the Contract

• It is important that the total fixed price and any supporting terms and

conditions are included in the contract to ensure that contract’s pricing is

clear to both parties.

• Clauses: For appropriate clauses for a fixed price basis of payment

please refer to Annex 6 (Section 6.1.2 Fixed Price) (To be released

soon).

Documentation,

Justification, Authorization

• Documentation of all decisions supporting validation, justification and

authorization of the price must be included in the procurement file.

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4.1.2 FIXED UNIT RATE

Definition

This basis of payment pays the contractor for the actual units purchased in performance of the work. For

example, units can represent labour or machine hours. The amount paid for these units is calculated based

on an estimate of the associated costs to establish a predetermined fixed rate. A predetermined fixed rate

is typically composed of estimated direct costs, indirect costs (overhead charge) and profit. Composition of

the fixed unit rate, including the above elements should be clearly stated in the contract to avoid paying the

contractor twice for costs already included in the fixed unit rate.

When to Use

• When predetermined fixed rates already exist or can be readily established.

• When it is not possible to estimate in advance the level of effort and/or quantities required to perform

the contract, but it is possible to determine within reasonable limits the applicable direct and indirect

costs for each unit purchased during the contract period.

• Pricing risk exposure related to volume variances and overhead absorption is minimal.

Factors to Consider

• Predetermined fixed rates are generally established by negotiation or regulation. Assurances should be

obtained on the reliability of rates, as well as their suitability. Adjustments to either the cost-base or profit

calculation may be appropriate for differences related to allowable costs and profit, if any, included in the

rates, as established by other jurisdictions or regulation.

• Canada regularly negotiates rates with a limited number of major government suppliers. Please contact

the Procurement Support Services Sector (PSSS) for information on available rates, either as

negotiated by Canada or by Canada’s allies.

• The contractor bears the risk that the actual units purchased by Canada may be considerably lower than

the estimated units resulting in a lower than expected profit due to lower than expected volume of work

and unabsorbed overhead costs.

Please Note

• The former fixed time rate basis of payment is a form of fixed unit rate basis of payment.

• The option has been changed to fixed unit rate to broaden the scope of what constitutes a unit,

which is anything that varies (e.g., machine hours, labour hours, materials, kilometers).

• The amount to be paid varies based on the increase and decrease in units.

40 | Page Public Services and Procurement Canada September 30, 2019

• Canada bears the risk that the actual units purchased from the contractor maybe considerably higher

than the units estimated for determining the rate resulting in a higher profit to the contractor than expected

due to higher than expected volume of work and the over absorption of overhead costs.

• If Canada’s portion of the contractor’s overall business volume is significant, for example, more than

10%, or the overhead component exceeds 20% of the value of the fixed unit rate, then consideration

should be given to introduce measures to mitigate pricing risks associated with volume variances.

• This could include active monitoring of actual business volumes and introducing contract provisions to

trigger rate adjustments to guard against the adverse impact of significant volume variances, for either

Canada or the contractor.

• Provision for validation of contractor claims of actual business volumes and variances should also be

considered, when Canada’s pricing risk exposure is significant.

• As in the case of a negotiated fixed price contract, establishing the credibility and reasonableness of the

costs and price proposed is necessary to ensure the negotiated price is fair and reasonable to Canada.

For significant continuing contractual relationships, ongoing validation of contractor costs and cost

management should be incorporated into the contract and umbrella agreements governing the

contractor’s relationship with Canada.

• All components of the fixed unit rate need to be clearly documented.

41 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Document

Decision to Use

Fixed Unit Rate

Basis of Payment

• Once a decision has been made to use a fixed unit rate basis of payment,

document it in the procurement file.

• Ensure all other applicable early decisions such as the justification for sole source

contracting, if applicable, (see 3.1 Annex: Treasury Board Questions for Sole

Source) (To be released soon) are included in the procurement file.

Establish the Cost

Base (if

applicable)

• To establish the cost base, follow Section 5.1 Establishing the Cost Base and for

profit rate calculations follow Section 5.2 Developing an Appropriate Profit.

• For non-competitive contracts, validation prior to contract award is necessary to

ensure that cost estimates are reasonable and that the contractor’s financial

systems, which support the estimates, are sufficient and reliable.

Negotiate Fixed

Unit Rates (if

applicable)

• For non-competitive contracts, the fixed rate is often determined by negotiation

between the contractor and contracting officer with support from PSSS’s price

advisors.

• Similar to fixed price contracts, once rates are fixed, they remain in place, unless

the contract provides for price adjustments, as for example to mitigate pricing

risks association with volume variances.

Consider the Use

of Incentives

• Consider the use of incentives and other measures to align both parties’

objectives to achieve the best value for money.

• A cost-control incentive where possible would be beneficial

• See Incentives section of the guide (Section 4.4 Incentives)

Incorporate

Pricing into the

Contract

• Fixed unit rate basis of payment can be used with a ceiling price, or without a

ceiling price (in which a limitation of expenditure clause would be used). Refer to

(Section 4.3 Ceiling Price and Limitation of Expenditure).

• Clauses: For appropriate clauses for fixed unit rate basis of payment please refer

to Annex 6 (Section 6.1.3 Fixed Unit Rate).

42 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Monitor, Review

and Evaluate

Pricing Strategy

• Monitor, review and evaluate the pricing strategy, as required, throughout the

contract. Take note of any issues with the contract and ensure early engagement

with PSSS to resolve any pricing matters.

Price Validation

• Canada faces similar pricing risk exposure for fixed unit rates, as it does when

price negotiations occur for fixed price contracts.

• Because rate negotiations typically involve continuing contractual relationships

with Canada, ongoing validation of contractor costs and cost management is

recommended to be included in the contract and umbrella agreements

governing the contractor’s relationship with Canada. This allows negotiations

for future contracts to be informed by actual costs and profit earned.

• As the contractual relationship matures, this offers Canada and the contractor a

greater degree of certainty on pricing, within expected business volumes.

• Contract pricing based on negotiated rates is highly complex and involves

professional judgment in the acceptance of costs cost and cost validation.

Pricing depends on the contractor’s accounting systems and internal controls.

Contracting officers are encouraged to seek Procurement Support Services

Sector advice and assistance in both determination of the price and obtaining

assurance on the reliability and accuracy of contractor invoices.

• For more information on validation strategies see Section 3.4 Developing a

Validation Strategy

Document,

Justification,

Authorization

• As applicable throughout this process, ensure all decisions are appropriately

documented, justified, and authorized.

• For non-competitive contracts with negotiated rates, ensure a detailed

breakdown of the agreed to cost estimates is explicitly stated in the contract and

documented in the procurement file, as well direction on how the price will be

administered throughout the contract period.

43 | Page Public Services and Procurement Canada September 30, 2019

4.1.3 COST REIMBURSABLE

A cost reimbursable basis of payment provides for the reimbursement to the contractor of allowable costs

incurred in performance of the work in the contract.

Please refer to SACC 1031-2 and Annex 2 (Costing Standard) for a description of allowable costs.

Factors to Consider

As actual costs are reimbursed, the project budget could be exceeded if cost increases are greater than

estimated. This situation can be mitigated with the provision of price control mechanisms such as a ceiling

price or limitation of expenditure (Section 4.3 Ceiling Price and Limitation of Expenditure) .

Different price control mechanisms are appropriate to different cost reimbursable options, as shown in the

following table:

Table 5: Cost Reimbursable with Ceiling Price or Limitation of Expenditure

Cost Reimbursable Option

Ceiling

Price

Limitation of

Expenditure

No fee

Fixed fee

Target cost - no maximum price

Target cost - maximum price

44 | Page Public Services and Procurement Canada September 30, 2019

Other examples of cost control useful for cost reimbursable basis of payment include:

• Implementing cost control incentives that can be used where possible to help encourage contractors to

control costs (see Section 4.4 Incentives);

• Reimbursing only defined categories of acceptable costs, in line with SACC Manual 1031-2 and Annex

2 (Costing Standard);

• Controlling the scope of work through specific tasking arrangements;

• Imposing limits on the recoverability of certain cost categories (e.g., direct R&D costs related to a product

will not exceed a set dollar value in a contract);

• Validating the actual costs incurred, to both control costs and meet requirements under Section 34 of

the Financial Administration Act (when additional risk factors warrant the use of a more formal validation

strategy, contact the Procurement Support Services Sector, see Annex 3 for contact information); or

• Specifying the fixed unit rate for certain costs (e.g., fixed hourly rate for labour).

When Should You Consider a Cost Reimbursable Basis of Payment?

Cost reimbursable pricing is primarily used when there is uncertainty as to the scope and requirements of

the work. Cost reimbursable pricing is generally used in negotiated contracts. It may not provide much

encouragement for a contractor to limit costs unless paired with a cost control incentive.

Cost reimbursable pricing is best confined to contracts (or contract components) for which scope is uncertain.

As such, cost reimbursable pricing is most appropriate in the following types of situations:

• Research and development;

• Major system development;

• Prototype development and testing;

• Low rate initial production;

• Immature industry, platform, or service;

• Minimal competition; and/or

• Immature product/poorly defined support concept/understanding of requirements.

45 | Page Public Services and Procurement Canada September 30, 2019

Cost reimbursable contracts should only be used when:

• A contractor’s accounting system is adequate for determining costs applicable to the contract.

• Adequate government resources are in place to manage a cost reimbursable contract, which includes

resources to review and validate costs claimed.

• Appropriate validation mechanisms exist during the performance of the contract to provide reasonable

assurance that efficient methods and effective cost controls are used.

• It is not possible to reasonably estimate a price for the work that can be agreed upon by both parties that

would result in more equitable sharing of risks and responsibilities between Canada and the contractor.

When Should You Not Consider a Cost Reimbursable Basis of Payment?

Cost reimbursable basis of payment should not be used if a commercial price is available.

Cost Reimbursable Options

There are four basic forms of the cost reimbursable basis of payment. Each starts with the defining feature

that the contractor is reimbursed for allowable costs incurred in performance of the work in the contract.

Cost reimbursable basis of payment can be used in conjunction with various incentives (see Section 4.4

Incentives) to ensure goals/objectives of both parties are aligned and value for money is achieved.

A combination of the types of various basis of payment can be used for different aspects of the procurement.

The four Cost Reimbursable basis of payment options are as follows:

1. Cost reimbursable with no fee

2. Cost reimbursable plus fixed fee

3. Cost reimbursable with target cost

4. Cost reimbursable with fee based on

actual costs (proposed for removal)

Figure 3 below indicates the components of each option. The four options are further explained below.

Did you Know?

Cost reimbursable with target cost makes use of a sharing

formula to control costs. See Section 4.1.3.3

46 | Page Public Services and Procurement Canada September 30, 2019

Figure 3: Illustration of Cost Reimbursable Basis of Payment Types and their Components

Cost-Reimbursable with

No Fee

(Section 4.1.3.1)

Cost-Reimbursable with

Fixed Fee

(Section 4.1.3.2)

Cost-Reimbursable with

Fees Based on Actual

Costs

(Section 4.1.3.4)

Proposed for removal

Cost-Reimbursable with

Target Cost Incentives

(Section 4.1.3.3)

Actual CostActual Costs

Target Cost

Fixed Fee = Profit

Profit = % of

Actual Cost

Target Profit

Actual Costs

Incentives

47 | Page Public Services and Procurement Canada September 30, 2019

4.1.3.1 COST REIMBURSABLE WITH NO FEE

Definition

• This basis of payment provides only for the reimbursement to the contractor of actual costs incurred.

• The contractor receives no fee.

When to Use

• Except for contracts covering the provision of assistance to a contractor, this basis of payment is rarely

used entirely on its own. Contractors cannot normally be expected to accept a contract that provides no

profit for the manufacture of goods or the provision of services.

• This basis of payment may be appropriate for contracts (or specific components of a contract) that are

exploratory in nature (i.e. research or development portion) or that involve not-for-profit organizations.

• This basis of payment may be appropriate for specific types of costs within a contract (for example travel

and living expenses) for which a mark-up or profit is not appropriate related to that specific procurement.

Factors to Consider

• This cost reimbursable option should include limitation of expenditure as a price control method since a

realistic statement of work cannot be submitted by the contractor, which prevents agreement between

the parties as to what constitutes the prescribed work and, therefore, negates using a ceiling price.

Process Steps

Process Overview

Document

Decision to Use

Cost

Reimbursable

Basis of Payment

• Once a decision has been made to use a cost-reimbursable basis of payment,

document the type that is most appropriate for the requirement and why it was

chosen in the procurement file.

• Ensure all other applicable early decisions such as the justification for sole source

contracting, if applicable, (see 3.1 Annex: Treasury Board Questions for Sole

Source) (To be released soon) are included in procurement file.

48 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Establish the Cost

Base

• Only the establishment of the cost base will be required for this basis of payment.

• For the cost base follow Section 5.1 Establishing the Cost Base.

• Validation strategies prior to contract award are important to ensure proposed

costs are acceptable and that contractor’s accounting systems are sufficient and

reliable in capturing, measuring and reporting of contract costs.

Consider the Use

of Incentives

• Consider the use of incentives and other measures to align both parties’

objectives to achieve the best value for money.

• A cost-control incentive where possible would be beneficial.

• See Incentives section of the guide (Section 4.4 Incentives)

Incorporate

Pricing into the

Contract

• The cost-reimbursable with no fee basis of payment must not include a ceiling

price.

• Clauses: For appropriate clauses for a cost-reimbursable with no fee basis of

payment please refer to Annex 6 (6.1.4 Cost-reimbursable with No Fee). (To be

released soon)

Monitor, Review

and Evaluate

Pricing Strategy

• Monitor, review and evaluate the pricing strategy, as required, throughout the

contract. Take note of any issues with the contract and ensure early engagement

with PSSS to resolve any pricing matters.

Price Validation

• Validate costs claimed by the contractor upon completion of the contract or

periodically, for example annually in the case of multi-year contracts.

• Validation can involve use of third party assurance professionals, such as the

contractor’s internal audit or external auditors or independent agent, acting on

Canada’s behalf, including auditors from other jurisdictions.

• Validation can be conducted by performing account verification procedures.

These procedures provide the basis for FAA S.34 certification of pricing being in

accordance with the contract.

• More information on validation strategies see Section 3.4 Developing a Validation

Strategy.

49 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Document,

Justification,

Authorization

• As applicable throughout this process, ensure all decisions are appropriately

documented, justified, and authorized.

• Ensure a detailed breakdown of the acceptable costs, given their nature and

amount, is explicitly included in the contract and documented in the procurement

file, as well direction on how the price will be administered throughout the contract

period.

50 | Page Public Services and Procurement Canada September 30, 2019

4.1.3.2 COST REIMBURSABLE WITH A FIXED FEE

Definition

• This cost reimbursable basis of payment option provides for payment to the contractor for acceptable

costs incurred by the contractor and a fixed fee (expressed as a dollar amount) as agreed to in the

contract. The actual amount of costs incurred in the performance of the work may be subject to

government audit. While the fixed fee does not vary with actual costs incurred, it may be renegotiated

under certain circumstances.

When to Use

• It may be appropriate to use this basis of payment when circumstances do not permit the use of a fixed

price basis of payment and where the possible savings from the use of a target cost contract are likely

to be offset by the complexities of contract administration resulting from its use.

• It is primarily used in research and advanced development or in projects where the level of effort required

is unknown.

Factors to Consider

• A possible benefit of this cost reimbursable option is that the contractor may be motivated to decrease

total cost to realize a higher rate of return (fee/cost).

• Another possible benefit is that the contractor may be motivated to finish the work as soon as possible

since the profit is fixed.

• Alternatively, under certain circumstances, a contractor may not be as motivated to control or reduce

costs because the fixed fee will be earned regardless of actual costs incurred and reimbursed.

51 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Document

Decision to Use

Cost

Reimbursable

Basis of Payment

• Once a decision has been made to use a cost-reimbursable basis of payment, document

the type that is most appropriate for the requirement and why in the procurement file.

• Ensure all other applicable early decisions such as the justification for sole source

contracting, if applicable, (see 3.1 Annex: Treasury Board Questions for Sole Source)

(To be released soon) is included in the procurement file.

Establish the Cost

Base

• For the cost base follow Section 5.1 Establishing the Cost Base and for profit rate

calculations follow Supply Manual Chapter 10.65

• Validation strategies prior to contract award are important to ensure proposed costs are

acceptable and that contractor’s accounting systems are sufficient and reliable in

capturing, measuring and reporting of contract costs.

Negotiate a Fixed

Fee Portion (if

applicable)

• The amount of the fixed fee, based on an estimate of the costs to be incurred, should

be no greater than the appropriate amount of profit (Refer to Section 5.2 Development

of an Appropriate Profit).

• This fixed fee is typically based on a percentage of the estimated cost and does not

change once it has been accepted by both parties.

Consider the Use

of Incentives

• Consider the use of incentives and other measures to align both parties’ objectives to

achieve the best value for money.

• A cost-control incentive where possible may be beneficial.

• See Incentives section of the guide (Section 4.4 Incentives)

Incorporate

Pricing into the

Contract

• Cost-reimbursable with fixed fee basis of payment can be used with a ceiling price, or

without a ceiling price (in which a limitation of expenditure clause will be used) (Section

4.3 Ceiling Price and Limitation of Expenditure).

• Clauses: For appropriate clauses for a Cost-reimbursable with Fixed Fee basis of

payment please refer to Annex 6 (6.1.5 Cost-reimbursable with Fixed Fee). (To be

released soon).

52 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Monitor, Review

and Evaluate

Pricing Strategy

• Monitor, review and evaluate the pricing strategy, as required, throughout the contract.

Take note of any issues with the contract and ensure early engagement with PSSS to

resolve any pricing matters.

Price Validation

• Validate costs claimed by the contractor upon completion of the contract or periodically,

for example annually in the case of multi-year contracts.

• Validation can involve use of third party assurance professionals, such as the

contractor’s internal audit or external auditors or independent agent, acting on Canada’s

behalf, including auditors from other jurisdictions.

• Validation can be conducted by performing account verification procedures. These

procedures provide the basis for FAA S.34 certification of pricing being in accordance

with the contract.

• For more information on validation strategies see Section 3.4 Developing a Validation

Strategy.

Document,

Justification,

Authorization

• As applicable throughout this process, ensure all decisions are appropriately

documented, justified, and authorized.

• Ensure a detailed breakdown of the acceptable costs, given their nature and amount, is

explicitly included in the contract and documented in the procurement file, as well as

direction on how the price will be administered throughout the contract period.

53 | Page Public Services and Procurement Canada September 30, 2019

4.1.3.3 COST REIMBURSABLE WITH TARGET COST

Cost reimbursable with a target cost is a form of gain or pain sharing, where cost efficiencies or losses are

rewarded and shared through fee arrangements in which both the contractor and Canada share the reward

(risk) of meeting (or not meeting) contract performance criteria. In effect, the gain or pain sharing formula in

this basis of payment acts as an incentive for the contractor to control their costs.

Setting targets and percentages for gain/pain sharing formulas should involve determining the likelihood of

variations from the established target Actual experience may indicate that the contractor’s underlying

business solution or Canada’s requirements have changed to the point where the “sharing agreement and

the contract should be amended.

For other incentives, see Section 4.4.2 Incentives Types.

There are two primary types of target cost:

 target cost with no maximum price; and

 target cost with maximum price.

These two types of cost reimbursable with target costs are described in more detail in Table 6 and Figure 4

below, and further in this section.

Table 6: Target Cost Types

Target Cost Type

Description

Target Cost with No

Maximum Price

• Canada and the contractor share in cost savings achieved or

costs exceeding the target in the performance of the contract.

• The contract uses a cost reimbursable basis of payment and

there are no limits to the losses or gains incurred.

• A sharing formula is predetermined at the outset of the

contract to allocate cost savings and costs in excess of pre-

established target costs.

• The contractor has the ability to earn additional profit relative

to the cost savings, which places a higher-degree of cost

responsibility and cost control on the contractor than that of a

standard cost reimbursable contract.

54 | Page Public Services and Procurement Canada September 30, 2019

Target Cost Type

Description

Target Cost with

Maximum Price

• Canada and contractor share in cost savings achieved or

costs exceeding the target in the performance of the contract

up to the point of the maximum price.

• The contract uses a cost reimbursable basis of payment up

to the point where the maximum price is reached, at which

point, the contract closely resembles a fixed price contract,

with the potential loss to Canada capped, increasing the risk

that is borne by the contractor.

• A sharing formula is predetermined at the outset of the

contract to allocate cost savings and costs exceeding pre-

established target costs (up to the maximum price).

• The contractor has the ability to earn additional profit relative

to the cost savings but takes on significantly more risk than a

target cost with no maximum price because the contractor will

not be paid any more than the maximum price while retaining

the obligation to complete the work as specified in the

contract.

55 | Page Public Services and Procurement Canada September 30, 2019

Figure 4: Target Cost Types

The table below displays the difference in risk and reward sharing undertaken by Canada and the contractor

in a target cost with no maximum price compared to that of a target cost with maximum price. The key

difference between the two occurs at the point of the maximum price.

Actual Cost

Target Cost

% Contractor

% Government

Government

100%

Contractor

Target Cost No Maximum Price

Target Cost with Maximum Price

Actual Cost

Maximum

Price

Actual Cost Actual Cost

56 | Page Public Services and Procurement Canada September 30, 2019

Target Cost with No Maximum Price

When to Use

• When the actual costs and cost components (e.g., labour hours, labour mix, material requirements) to

be incurred in the performance of a contract cannot be accurately predicted and greater cost control than

that of a standard cost reimbursable contract is required.

• When it is too difficult to attract a contractor without having an over inflated fixed price to compensate

industry for the risks related to the uncertainties.

• When it is possible to establish an objective relationship between contractor profit and contract costs.

• When procuring non-commercial goods or services with unpredictable requirements such as new

products and research and development programs.

Factors to Consider

Risks

Benefits

• Developing estimates of target costs and all

related variations can be difficult and time

consuming.

• Adequate time for planning the project and

assessing the cost estimates is essential.

• With no cost limit, there is potential for costs to

exceed initial budgets which can result in the

need for additional funding.

• A misaligned gain/pain sharing ratio could

result in low effectiveness of the incentive

needed to achieve desired cost efficiencies.

• Performance objectives other than cost (e.g.,

related to quality or schedule) may be

compromised or overlooked particularly if the

focus is solely on cost.

• The contractor’s risk is lowered because a

portion or all (in a limited sharing arrangement)

costs are recovered.

• Contractors are incented to be efficient because

the more efficient they are, the greater their

profit.

57 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop Target

Cost

• Establish a reasonable but challenging target cost that is achievable. There is no

purpose in setting target costs that the contractor cannot meet.

• A conservative estimate of target cost is preferable to an overly aggressive target

cost.

• Target costs should be established that are in line with contract cost principles

SACC 1031-2 and Annex 2 (Costing Standards).

Develop Target

Profit

• Target profit should be developed using the approach detailed in Section 5.2

(Development of An Appropriate Profit) using the target cost as the cost base.

• The contractor is rewarded a profit to control costs and, as a result, the target

profit is reflective of the level of cost responsibility assumed by the contractor.

• The target profit is the amount of profit payable without adjustment if the actual

costs incurred equal target cost.

58 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop Sharing

Formula

• The sharing formula is used to calculate how savings and costs exceeding the

target will be shared between Canada and the contractor.

• The formula takes into account two scenarios:

o When the actual cost is less than the target cost.

o When the actual cost is greater than the target cost.

• A government share/contractor share ratio is established for each of these

scenarios. The ratios can be the same or can differ, depending upon the level of

risk acceptable by each party.

• The sharing formula subtracts the actual cost from the target cost, and multiplies

this by the contractor’s share for the scenario that actually occurred. This is then

added to the actual cost and the target profit to arrive at a final price paid. (This

is demonstrated mathematically in examples later in this section.)

• In development of the sharing formula, it is important to consider all possible

variations, from the most optimistic to the most pessimistic, including any risk not

covered in the target cost and target profit, how aggressive the target cost is, and

potential changes through the acquisition lifecycle.

• For example:

• A more aggressive target cost may provide for a sharing ratio that heavily

rewards the contractor for costs less than target (20/80) but more equally

shares costs in excess of target (50/50) due to the higher likelihood of

exceeding the aggressive target.

• A target cost which is achievable and less aggressive, would result in a share

ratio that would more equally share costs less than target (60/40) with the

contractor taking on a larger portion of costs in excess of target (25/75).

• A Limited Sharing Arrangement can be used when there is a very high degree of

uncertainty in setting the target costs, as detailed in Example 2 below. Maximum

and Minimum Fees are used to limit the gains or costs exceeding the target. Note

that with these arrangements, the government assumes 100% of the risk of costs

exceeding the target at the minimum fee point.

59 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Documentation,

Authorization and

Incorporation into

Contract

• Documenting all decisions, rationales and supporting justifications along with

authorization of the incentive plan must be included in the procurement file.

• The target cost, target profit, sharing formula and validation plan must be

documented and incorporated in the contract.

• See Section 3.3 (Documenting & Justifying Key Price Decisions) for further

details.

Examples

The impact of a target cost with no maximum price may vary depending on how the incentive is applied.

Outlined below are three examples of different applications of this incentive and how contractors may behave

as a result.

The following factors apply to Examples 1, 2 and 3 below:

Target Cost

Estimated cost to perform the contract requirements is $100,000

Target Profit

10% of Costs is $10,000

Share Ratios

Vary with each example

60 | Page Public Services and Procurement Canada September 30, 2019

Example 1: Target Cost with No Maximum Price Contract, Unlimited Sharing Arrangement

In this example, a 60/40 ratio for costs less than target and 50/50 ratio for costs exceeding the target have

been established. The amount of profit that could be earned by the contractor is not limited in the case of

cost savings. Similarly, there are no limits to the cost that Canada and the contractor may share in the case

of costs exceeding the target, resulting in an unknown final price that could be higher than budgeted.

However, Canada only incurs 50% of costs exceeding the target and benefits in 60% of all cost savings.

-15

-10

-5

60 70 80 90 100 110 120 130 140 150

Profit

(in thousands of dollars)

Cost

(in thousands of dollars)

Target Cost No Maximum Price

Target

Cost

Target Profit

Target Cost: $100,000

Target Profit: $10,000

Target Price: $110,000

Share Ratio:

costs less than target: 60/40

costs more than target: 50/50

61 | Page Public Services and Procurement Canada September 30, 2019

Example 1: Target Cost with No Maximum Price Contract, Unlimited Sharing Arrangement (continued)

Target

Cost

Actual

Cost

Sharing Formula

[% * (Target Cost – Actual

Cost)]

Target

Profit

Contract Profit or

Loss

(Sharing Formula +

Target Profit)

(Profit/Loss)/Actual

Costs = %

Final Price

Paid

(Actual Cost +

Contract Profit

or Loss)

$100,000

$80,000

40% * ($100,000-$80,000)

= $8,000

$10,000

$18,000

22.5%

$98,000

$100,000

$90,000

40% * ($100,000-$90,000)

= $4,000

$10,000

$14,000

15.6%

$104,000

$100,000

($100,000-$100,000)

=$0

$10,000

10%

$110,000

$100,000

$110,000

50% * ($100,000-$110,000)

=($5,000)

$10,000

$5,000

4.55%

$115,000

$100,000

$120,000

50% * ($100,000-$120,000)

= ($10,000)

$10,000

$120,000

$100,000

$140,000

$50% * ($100,000 -

$140,000)

= ($20,000)

$10,000

($10,000)

-7.1%

$130,000

62 | Page Public Services and Procurement Canada September 30, 2019

Example 2: Target Cost with No Maximum Price but with Maximum and Minimum Fees

In this example, there is a maximum limit imposed on the amount of profit that could be earned by the

contractor in the case of cost savings and a minimum amount of profit imposed in the case of costs exceeding

the target. No limits are applied on the amount of actual costs incurred.

In this case, the maximum limit of profit is set at $14,000 and the minimum limit is set at $5,000.

Using the same share ratios as indicated in Example 1, those limits would take effect once actual costs fall

below $90,000, or exceed $110,000. The share ratio only takes effect within this range of actual costs. If

the contractor’s actual costs were between $90,000 and the target cost of $100,000, then the contractor has

to share these cost savings with Canada in the 60/40 proportion. Similarly, if the actual costs were above the

target cost but below $110,000, then the costs exceeding the target are shared equally between the two

parties (50/50). If actual costs, however, are greater than $110,000 or lower than $90,000, the contractor is

eligible to receive either $5,000 or $14,000 of profit. This means that any costs exceeding the target or

savings greater than $10,000 belong to Canada.

70 80 90 100 110 120 130

Profit

(in thousands of dollars)

Cost (in thousands of dollars)

Target Cost with No Maximum Price but with Maximum and Minimum Fees

Target

Cost

Target Profit

Target Cost: $100,000

Target Profit: $10,000

Target Price: $110,000

Min Fee: $5,000

Max Fee: $14,000

Share Ratio:

costs less than target: 60/40

costs more than target: 50/50

Range of Incentive

Effectiveness

Max Fee

100/0

Min Fee

100/0

63 | Page Public Services and Procurement Canada September 30, 2019

Example 2: Target Cost with No Maximum Price but with Maximum and Minimum Fees (continued)

Target

Cost

Actual

Cost

Sharing Formula

[% * (Target Cost – Actual

Cost)]

Target

Profit

Contract Profit

or Loss

(Sharing Formula +

Target Profit)

(Profit/Loss)/Actual

Costs = %

Final Price

Paid

(Actual Cost

+ Contract

Profit or

Loss)

$100,000

$80,000

($100,000 - $80,000)

= $20,000 > Maximum Fee

$14,000

$10,000

$14,000

17.5%

$94,000

$100,000

$90,000

40% * ($100,000-$90,000)

=$4,000

$10,000

$14,000

15.6%

$104,000

$100,000

($100,000-$100,000)

=$0

$10,000

10%

$110,000

$100,000

$110,000

50% * ($100,000-$110,000)

=($5,000)

$10,000

$5,000

4.55%

$115,000

$100,000

$140,000

($100,000 - $140,000)

=($40,000) < Minimum Fee

$5,000

$10,000

$5,000

3.6%

$145,000

Since there is a limit on the maximum and minimum profit, this incentive is effective only when the actual

costs incurred are not outside the cost range within which the profits that the contractor could earn vary. In

other words, the contractor may be willing to control the costs up to the point where possible profit stops

increasing with the increase of cost savings.

For Canada, this type of contract could be more costly than demonstrated in Example 1, as Canada assumes

100% of risk of costs exceeding the target at the minimum fee point.

64 | Page Public Services and Procurement Canada September 30, 2019

Example 3: Target Cost with No Maximum Price but with Changing Share Ratio

A final variation is where there are no maximum or minimum profits set, but instead, points at which the share

ratios may change.

In this example, the original share ratios are still reasonable when the actual cost is within a range of 10% of

the target cost, i.e. between $90,000 and $110,000. When actual costs fall below 10% of the target cost (i.e.

below $90,000) a different ratio, in this case 80/20, is triggered. Similarly, when actual costs rise above 10%

of the target costs (i.e. above $110,000), a ratio of 20/80 will apply. The following graph illustrates the

described situation.

-10

-5

70 75 80 85 90 95 100 105 110 115 120 125 130

Profit

(in thousands of dollars

)

Cost

(in thousands of dollars)

Target Cost no Max Price with Changing Share Ratio

Target

Cost

Target Profit

Target Cost: $100,000

Target Profit: $10,000

Target Price: $110,000

Share Ratio (costs within 10% *

Target Cost):

costs less than target: 60/40

costs more than target: 50/50

Share Ratio (costs differences

exceeding 10% * Target Cost):

costs less than target: 80/20

costs more than target: 20/80

65 | Page Public Services and Procurement Canada September 30, 2019

Example 3: Target Cost with No Maximum Price but with Changing Share Ratio (continued)

Target

Cost

Actual

Cost

Sharing Formula

[% * (Target Cost – Actual Cost)]

Target

Profit

Contractor

Profit or Loss

(Sharing Formula

+ Target Profit)

(Profit/Loss)/Actual

Costs = %

Final Price

Paid

(Actual Cost +

Contract Profit

or Loss)

$100,000

$80,000

($100,000 - $80,000) = $20,000;

 $10,000 < 10% (60/40)

 $10,000 > 10% (80/20)

(40% * $10,000) + (20% * $10,000)

=$6,000

$10,000

$16,000

20%

$96,000

$100,000

$90,000

40% * ($100,000-$90,000) = $4,000

$10,000

$14,000

15.6%

$104,000

$100,000

($100,000-$100,000) = $0

$10,000

10%

$110,000

$100,000

$110,000

50% * ($100,000-$110,000) = ($5,000)

$10,000

$5,000

4.55%

$115,000

$100,000

$140,000

($100,000 - $140,000) = ($40,000)

 ($10,000) < 10% (50/50)

 ($30,000 > 10% (20/80)

(50% * $10,000) + (80% * $30,000)

= ($29,000)

$10,000

($19,000)

-13.6%

$121,000

The contractor is further incented to not exceed the cost above the certain percentage of the target cost in

this situation rather than in the situation outlined in Example 1 because the contractor bears a greater

percentage of costs if the variance is greater than the pre-established percentage of the target cost.

66 | Page Public Services and Procurement Canada September 30, 2019

Target Cost with Maximum Price

When to Use

• When it is possible to establish a firm target cost, target profit and sharing formula as well as be able to

establish a maximum price and cost sharing limit that sufficiently incents the contractor to assume an

appropriate share of the risk.

• When adequate requirements and cost information are available at the time the basis of payment is being

developed.

• When Canada would like to share expected efficiency savings in a contract.

• For a newer program, good or service, where there is a clear understanding of what Canada requires.

• When there are no significant unresolved technical process or design issues that will result in a redesign

of the requirements.

• When there are qualified contractors with the financial capacity to absorb any unforeseeable costs

exceeding the maximum price while still being able to deliver the product.

Factors to Consider

Risks

Benefits

• Significant risk is put on the contractor for

final delivery regardless of costs exceeding

the target. As a result, reasonable profit

sharing ratios must be established.

• Performance objectives other than cost (e.g.,

related to quality or schedule) may be

compromised or overlooked if the focus is

solely on cost.

• Canada is able to share in cost efficiencies.

• Canada limits the risk on costs exceeding the

target above the maximum price. After the

maximum price and cost sharing limit are

reached, the contractor bears the risk of any

additional costs.

67 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop Target

Cost

• Establish a reasonable but challenging target cost. This means that it can be

attained by the contractor provided the contractor focuses on achieving

efficiencies. There is no purpose in setting target costs that the contractor cannot

meet.

• A conservative estimate of target cost is preferable to an aggressive target cost.

• Target cost should be established in line with contract cost principles SACC 1031-

2 and Annex 2 (Costing Standards).

Develop Target

Profit

• Target profit should be developed using the weighted guidelines approach as

detailed in Section 5.2 (Development of An Appropriate Profit) using the target

cost as the cost base.

• The contractor is rewarded a profit to control costs and, as such, the target profit

is reflective of the level of cost responsibility assumed by the contractor.

• The target profit is the amount of profit payable without adjustment if the actual

costs incurred equal target cost.

Develop Sharing

Formula

• The sharing formula is used to calculate how savings and costs exceeding the

target will be shared between Canada and the contractor.

• The formula takes into account two scenarios:

o When the actual cost is less than the target cost.

o When the actual cost is greater than the target cost.

• A government share/contractor share ratio is established for each of these

scenarios. The ratios can be the same or can differ, depending upon the level of

risk agreed to be accepted by each party.

• The sharing formula subtracts the actual cost from the target cost, and multiplies

this by the contractor’s share for the scenario that actually occurred. This is then

added to the actual cost and the target profit to arrive at a final price paid. (This

is demonstrated mathematically in examples later in this section.)

• In development of the sharing formula, it is important to consider all possible

variations, from the most optimistic to the most pessimistic, including any risk not

68 | Page Public Services and Procurement Canada September 30, 2019

covered in the target cost and target profit, how aggressive the target cost is, and

potential changes through the acquisition lifecycle.

For example:

• A more aggressive target cost may provide for a sharing ratio that heavily rewards

the contractor for costs less than target (20/80) but more equally shares costs in

excess of target (50/50) due to the higher likelihood of exceeding the aggressive

target

• A target cost which is achievable and less aggressive, would result in a share

ratio that would more equally share costs less than target (60/40) with the

contractor taking on a larger portion of costs in excess of target (25/75).

• A Limited Sharing Arrangement can be used when there is a very high degree of

uncertainty in setting the target costs, as detailed in Example 2 below. Maximum

and Minimum Fees are used to limit the gains or costs exceeding the target. Note

that with these arrangements, the government assumes 100% of the risk of costs

exceeding the target at the minimum fee point.

69 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop

Maximum Price

• This is the maximum amount that Canada will pay on the contract.

• The maximum price represents the limit of Canada’s obligation to pay the

contractor for the work under the contract. This should be a realistic figure that is

not so high as to have no meaning.

• If the sharing arrangement is effective and the contractor is efficient in the

performance of the contract, the maximum price will not come into effect.

• The contract becomes a fixed price contract if the costs rise to the point where

the maximum price takes effect.

Documentation,

Authorization and

Incorporation into

Contract

• Documenting all decisions, rationales and supporting justifications along with

authorization of the incentive plan must be included in the procurement

plan/approval documents.

• The target cost, target profit, sharing formula, maximum price, and validation plan

must be documented and incorporated in the contract.

• See Section 3.3 (Documenting & Justifying Key Price Decisions) for further

details.

70 | Page Public Services and Procurement Canada September 30, 2019

Example

The following example shows how the target cost with maximum price incentive functions.

Example Factors

Target Cost

Estimated cost to perform the contract requirements is $100,000

Target Profit

10% of target costs is $10,000

Maximum Price

$115,000

Share Ratios

Costs in excess of target to be shared 50/50

Costs less than target to be shared 60/40

This situation is illustrated on the following graph.

70 75 80 85 90 95 100 105 110 115 120

Profit

(in thousands of dollars)

Cost

(in thousands of dollars)

Target Cost with Maximum Price

Target

Cost

Target Profit

Target Cost: $100,000

Target Profit: $10,000

Target Price: $110,000

Max Price: $115,000

Share Ratio:

costs less than target: 60/40

costs more than target: 50/50

71 | Page Public Services and Procurement Canada September 30, 2019

Example (continued)

Target

Cost

Actual

Cost

Sharing

Formula

[% * (Target Cost – Actual

Cost)]

Resulting Price Before

Maximum Price

[%*(Target Costs – Actual

Costs)]+Actual Costs +Target

Profit

Final Price

Paid

Lesser of:

Resulting

Price or

Maximum

Price

($115,000)

Contractor Profit or

(Loss)

Final Price Paid –

Actual Costs

Profit/(Loss)/Actual

Costs = %

$100,000

$80,000

40% * (100,000-80,000)

=$8,000

8,000+80,000+10,000

=$98,000

$98,000

$18,000

22.5%

$100,000

$90,000

40% * (100,000-90,000)

=$4,000

4,000+90,000+10,000

=$104,000

$104,000

$14,000

15.6%

$100,000

(100,000-100,000) =$0

0+100,000+10,000

=$110,000

$110,000

$10,000

10%

$100,000

$110,000

50% * (100,000-

110,000)=($5,000)

(5,000)+90,000+10,000

=$115,000

$115,000

$5,000

4.55%

$100,000

$111,000

50% * (100,000 - 111,000)

=($5,500)

(5,500)+111,000+10,000

=$115,500

$115,000

$4,000

3.6%

$100,000

$112,000

50% * (100,000 - 112,000)

=($6,000)

(6,000)+112,000+10,000

=$116,000

$115,000

$3,000

2.7%

$100,000

$140,000

50% * (100,000 - 140,000)

=($20,000)

(20,000)+140,000+10,000

=$130,000

$115,000

($25,000)

(-17.9%)

72 | Page Public Services and Procurement Canada September 30, 2019

4.1.3.4 COST REIMBURSABLE WITH FEE BASED ON ACTUAL COSTS

Definition

Cost reimbursable with fee based on the actual costs provides for the payment to the contractor for actual

costs incurred in the performance of the work in the contract plus the fixed percentage of those actual costs

as a profit.

When to Use

Use this basis of payment only when the circumstances do not allow for the use of any other basis of payment.

Factors to Consider

• The application of this basis of payment results in higher profits being earned as costs increase, resulting

in no encouragement for cost control.

• Consider the applicability of Incentives, Section 4.4, before using this basis of payment.

• Ceiling prices are not applicable with this basis of payment.

Process Steps

Process Step

Process Overview

Document

Decision to Use

Cost

Reimbursable

Basis of Payment

• Once a decision has been made to use a cost-reimbursable basis of payment,

document the type that is most appropriate for the requirement and why in the

procurement file.

• Ensure all other applicable early decisions such as the justification for sole source

contracting, if applicable, (see 3.1 Annex: Treasury Board Questions for Sole

Source) (To be released soon) is included in procurement file.

Please Note

• There is a proposal to remove this basis of payment.

• This basis of payment is not recommended because it provides little or no control over contractor

costs and actually encourages contractors to increase costs as a way to increase profit.

73 | Page Public Services and Procurement Canada September 30, 2019

Establish the Cost

Base

• Only the establishment of a cost base will be required for this basis of payment.

• For the cost base follow Section 5.1 Establishing the Cost Base and for profit rate

calculations follow Section 5.2 Development of an Appropriate Profit.

• Validation strategies upfront are important to ensure costs agreed to should be

acceptable and that contractor’s accounting systems are reliable.

• For a competitive contract, the cost base may also be influenced by costs

included in initial bids, provided they meet the “Acceptable” cost criteria in

Canada’s Costing Standard.

Consider the Use

of Incentives

• Consider the use of incentives and other measures to align both parties’

objectives to achieve the best value for money.

• A cost-control incentive where possible would be beneficial.

• See Incentives section of the guide (Section 4.4 Incentives).

Incorporate

Pricing into the

Contract

• Cost-reimbursable with fee based on actual costs basis of payment must not

include a ceiling price.

• Clauses: for appropriate clauses for a cost-reimbursable with fee based on actual

costs basis of payment please refer to Annex 6 (6.1.6 Cost-reimbursable with Fee

based on actual costs). (To be released soon).

Monitor, Review

and Evaluate

Pricing Strategy

• Monitor, review and evaluate the pricing strategy, as required, throughout the

contract. Take note of any issues with the contract and ensure early engagement

with PSSS to resolve any pricing matters.

Price Validation

• Validate costs claimed by the contractor upon completion of the contract or

periodically, for example annually in the case of multi-year contracts.

• Validation can involve use of third party assurance professionals, such as the

contractor’s internal audit or external auditors or independent agent, acting on

Canada’s behalf, including auditors from other jurisdictions.

• Validation can be conducted by performing account verification procedures.

These procedures provide the basis for FAA S.34 certification of pricing being in

accordance with the contract.

• For more information on validation strategies see Section 3.4 Developing a

Validation Strategy.

74 | Page Public Services and Procurement Canada September 30, 2019

Document,

Justification,

Authorization

• As applicable throughout this process, ensure all decisions are appropriately

documented, justified, and authorized.

• Ensure a detailed breakdown of the acceptable costs, given the nature and

amount, is explicitly included in the contract and documented in the procurement

file, as well as direction on how the price will be administered throughout the

contract period.

Example: Cost Reimbursable with Fee Based on Actual Costs

There is a research contract where the cost could not be reliably estimated prior to contract award. The profit

level, however, that could be earned by the contractor was negotiated as 5% of the actual costs incurred.

Having such an agreement in place, the contractor will be reimbursed for all allowable costs incurred plus

the 5% of these costs as a profit.

For example, if the contractor’s actual costs are $100,000, then the total payment to the contractor would be

$100,000 + 5% fee (or $5,000) for a total of $105,000. While the absolute amount of profit will vary with the

change in the actual cost, the profit percentage will always remain constant. The following chart graphically

shows the relationships between profit and the actual costs.

0 10 20 30 40 50 60 70 80 90 100 110 120 130

0.0%

1.0%

2.0%

3.0%

4.0%

5.0%

6.0%

Profit

in thousands of $

Cost

in thousands of $

Profit

in % of actual costs

Cost Reimbursable with Fee Based on Actual Costs

Profit Percentage Line

75 | Page Public Services and Procurement Canada September 30, 2019

4.1.4 PROVISIONAL PRICE BASIS OF PAYMENT

Definition:

A provisional price basis of payment is used when there is a plan to move from a cost reimbursable basis of

payment to a fixed price basis of payment because there will be an increased certainty in terms of the contract

requirements over time, which therefore decreases the risks to Canada for the remainder of the contract.

Provisional pricing gives contracting officers the ability to reduce the risks to Canada when they are able to

better analyze and evaluate appropriate, attributable and reasonable costs.

In a provisional price basis of payment, a contract begins with a cost reimbursable basis of payment when

the requirements and costs within the contract are uncertain or cannot be estimated, with a clearly defined

price ceiling or limitation of expenditure.

Provisional price requires a milestone to be established that is relevant to the level of uncertainty for the

requirement. This milestone is typically tied to a certain percentage of work completed or achievement of

critical performance indicators within the contract when the costs are more certain and stable. This would

predefine when the cost reimbursable portion is complete and the basis of payment can move to fixed price.

This must be clearly detailed in the contract.

Costs must be validated before the basis of payment is formally changed. The price validation is triggered

when the contractor submits a declaration of the percentage of work completed that corresponds to the

milestone. This declaration must include a cost submission prepared by the contractor.

Contractors must cooperate in a timely manner with auditors and provide all necessary supporting evidence

such as financial information, as and when required by auditors. The submission of all costs incurred must

be sufficient to disclose unit cost and cost trends for the goods and/or services performed in relation to the

contract and inventories of both work in

progress and undelivered contract supplies

on-hand. Benchmarking by market data or

historical data on costs and profit calculation

is also included in the price validation process.

The use of expertise within PSSS to validate

the price is highly recommended.

When the milestone is attained and the costs

become more certain and stable, Canada and

the contractor will negotiate a fixed price for

the remainder of the contract based on the

terms and conditions outlined in the initial

contract. An appropriate profit level will need

to be included as part of this fixed price. When an attributable, appropriate and reasonable fixed price has

been agreed to by both parties, the original contract will be formally amended and any changes to required

clauses and terms will be made.

Important Reminder

 There is expert advice and support available

within the Procurement Support Services

Sector (PSSS) of PSPC to assist in validating

price.

 Price advisors and assurance advisors should

be consulted early in the process.

76 | Page Public Services and Procurement Canada September 30, 2019

Figure 5 below is a visual representation of how these components work together in a Provisional Price

contract.

Figure 5: How Provisional Price Works: A Visual Representation

When Should You Consider a Provisional Price Basis of Payment?

 Typically, provisional pricing is used in longer-term contracts (e.g., five (5) years or longer), in instances

where it is not possible to fix the price due to uncertainty, or where there is an inability to set reasonable

estimates or targets on contract requirements and costs.

• Provisional pricing enables contracting officers to work towards the benefits of a fixed price, such as

cost efficiencies, transfer of risk to the contractor, and reduction of the administrative burden that existed

during the period where the contract had a cost reimbursable basis of payment. A cost benefit analysis

could help to reveal the potential value in using provisional pricing.

When Should You Not Use Provisional Price?

• A provisional price basis of payment should not be used:

o Where there is a significant risk that Canada will not obtain the degree of collaboration and

cooperation from the supplier required for fulfilment of the contract terms unique to this basis of

payment. For example, when difficulties are experienced proposing or preparing to transition the

contract or during negotiations to transition the contract from cost reimbursable to fixed price basis

of payment.

77 | Page Public Services and Procurement Canada September 30, 2019

o If the contract requirements and costs are stable or certain. In this situation, a fixed price basis of

payment is the more appropriate choice.

o In cases where the contract requirements and costs are likely to remain unstable or uncertain. In this

case, a cost reimbursable basis of payment is likely be the more appropriate option.

Factors to Consider

 Provisional pricing may increase administrative burden (time, resources and costs) due to the need to

assess, validate and fix the price part way through the contract. This is why it is important to consider

using cost-benefit analysis (e.g., option analysis) early in the procurement process to ensure this basis

of payment is the best fit for the requirement.

 The cost reimbursable portion of the contract comprises a similar risk exposure and resulting lower profit

premium because Canada bears the risk for cost variations. Similarly, the fixed price portion of the

contract has a similar risk exposure and resulting higher profit premiums as a fixed price basis of

payment due to the fact that the contractor bears the risk for cost variations. See Section 4.1 (Basis of

Payment) for each basis of payment for further details.

 There is a risk for Canada that inefficient production practices from the cost reimbursable portion of the

contract could result if the contractor is not encouraged to control the costs. The contractor may

overstate costs to be able to establish the price at higher levels in later periods of the contract. To help

mitigate this risk, contracting officers should consider the use of cost incentives and ensure that a price

validation exercise is completed before fixing the price. For example, a price audit with examination of

actual costs and profit or benchmarking exercises, such as should-cost analysis, could be performed.

Figure 6 below summarizes the key components of Provisional Price basis of payment.

78 | Page Public Services and Procurement Canada September 30, 2019

Figure 6: Provisional Price Basis of Payment: Process

Process Steps

Process Overview

Document

Decision to Use

Provisional

Pricing

• Since provisional pricing may create an increased administrative burden (time,

resources and costs) due to the need to firm up the price part way through the

contract, consider cost-benefit analysis in adopting this procurement strategy

early in the procurement process and document the decision accordingly in the

procurement file explaining how this basis of payment is the best fit for the

requirement.

Determine the

Initial Basis of

Payment to be

Used for the

Contract Price

• Determine the appropriate cost-reimbursable basis of payment that is to be used

for the initial portion of the contract corresponding to the contract’s milestones.

• Consider using the Cost Accounting Practices Submission (CAPS) to develop a

common understanding with the contractor on the cost accounting practices to

be applied in determining costs.

• Validation strategies prior to contract award are important to ensure proposed

costs are acceptable and that contractor’s accounting systems are sufficient and

reliable in capturing, measuring and reporting of contract costs.

Initial Basis of Payment = Cost reimbursable

Maximum Price Ceiling

Milestone for Fixing Price - % of work complete

Cost Submission from Contractor

Fixed Price Recommendation from Price Validation

Price Negotiations and Amendment to Contract

79 | Page Public Services and Procurement Canada September 30, 2019

• See Section 4.1.3 Cost-Reimbursable for more information and detailed process

steps.

Set the Price

Ceiling or

Limitation of

Expenditure

• Set a clear price ceiling or limitation of expenditure in the contract and monitor to

ensure it is adhered to. Refer to 4.3 Ceiling Price and Limitation of Expenditure.

80 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Set an

Appropriate

Milestone that is

Relevant to the

Level of

Uncertainty for

the Requirement

• Milestone: Provisional pricing requires a milestone to be set in the contract to

determine when the cost reimbursable portion of the contract is complete and the

price for the remaining work is fixed. This is typically done based on a percentage

of completion of work or achievement of critical performance milestones within a

contract.

• Determine the percentage level for when the contractor will declare the cost

reimbursable portion of the work complete at which point a price validation is

required to determine the remaining work which will be performed on a fixed-price

basis.

• Document the milestone clearly in the contract and provide the justification for the

milestone in the procurement file.

• The following are suggested guidelines to follow when setting up this key

milestone in the contract:

o The milestone should generally be established at a point between 30 to

70% of work completion.

o Decisions on the above percentage of work completion will depend on

the nature of the requirement.

o For example, where the nature of the requirement allows for costs to be

estimated early on the project timeline, a 30% work completed milestone

could be set as the point at which prices will be fixed. This may be typical

of new developmental contracts, where only 10% of the work will be

design and the next 20% represents production costs that are

predictable. In this example, the remaining costs can be easily estimated.

Negotiate

Transition from

Cost

Reimbursable to

Fixed Price

 Ensure the terms to negotiate the transition from the cost reimbursable portion

to the fixed price portion are incorporated in the original solicitation and contract.

 At a minimum, these terms should include:

o Responsibilities of Canada and the contractor – should address. cost

submission, price validation, and determining fixed price component;

o Timelines – for example a 60 day negotiation period;

o Corrective measures.

81 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Cost Submission

from the

Contractor

o This is a declaration made by the contractor that the cost-reimbursable

portion of the work has been completed and provides a cost submission

prepared by contractor relative to the remaining work on the contract that

will be performed on a fixed-price basis.

o Cost Submission:

o It is the contractor’s responsibility to declare when the milestone is

reached and then provide a cost submission.

o Contractors are required to cooperate fully and in a timely

manner with Canada by providing all necessary evidence as

requested to support the proposed costs needed to establish the

fixed price portion of the contract.

o Cost Submission:

o Breakdown of all costs incurred should be provided.

o The data must be sufficient to disclose unit cost and cost

trends for the goods and/or services performed in relation to

the contract, and inventories of work in progress and

undelivered contract supplies on hand (estimated to the

extent necessary).

o The data must be accurate and reliable.

o Contracting officers should monitor the progress of the contract work to

ensure the contractor submits its declaration of percentage of work

complete and a cost submission in a timely manner.

o Provisional pricing is highly complex and involves professional judgment

in the cost acceptance and cost validation. Pricing depends on the

contractor’s accounting systems and internal controls. Contracting

officers are encouraged to seek Procurement Support Services Sector

advice and assistance in both determination of the price and obtaining

assurances on the reliability and accuracy of contractor invoices.

o Contracting officers should also anticipate when the cost reimbursable

milestone will be reached and communicate the expected timeline with

the Procurement Support Services Sector to enable PSSS to provide

support in the validation of costs and facilitate the timely completion of

the exercise to fix the price for the remainder of the contract, and limit

delay in the continued work under the contract.

82 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Fixed Price

Recommendation

from Price

Validation

• Canada needs to validate the reasonableness of the contractor’s proposed costs

and profit.

• A price validation exercise will be conducted to determine a fair and reasonable

fixed price for the remainder of the contract.

• A price validation exercise usually involves a review of the actual costs incurred

to establish a basis from which a fixed price may be determined.

o It is recommended that Contracting officers seek assistance from the

Procurement Support Services Sector when conducting a price validating

exercise.

• Costs can also be validated through benchmarking (for example, comparison of

costs using market-data or historical data, etc.) if the information is available.

• An appropriate profit level will need to be negotiated as part of the fixed price.

o This would be calculated in accordance with Section 5.2 Development of

an Appropriate Profit. Support for negotiating a fair and reasonable profit

is available from the Procurement Support Services Sector’s Price

Advisory Group.

• Cost information must be submitted by the contractor in a timely fashion and

Canada must, similarly, conduct its price validation exercise in a timely manner

so as to limit the delay to conversion of the basis of payment, and unnecessarily

impacting the progress of the work under the contract.

Price

Negotiations and

Use of Dispute

Resolution

Process, if

required

• Based on terms and conditions set out in the original contract, along with

recommendation on the fixed price from the price validation exercise, Canada

and the contractor will together negotiate a fixed price for the remainder of the

contract.

• In the event, the contractor and Canada are unable to come to an agreement on

a fixed price for the remainder of the contract:

• The dispute resolution process outlined in the contract may be invoked. If

agreement cannot be reached, then it may be necessary to renegotiate the

contract on a cost reimbursable basis of payment or terminate, if the

contractor’s proposed going forward is unaffordable.

• Contracting officers are recommended to consult with the Procurement

Support Services Sector in this situation.

83 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Incorporate New

Pricing

Amendment to

Contract to

• After a fixed price is negotiated, the original contract will be formally amended to

convert its basis of payment to fixed price for the remainder of the contract period.

• The amendment must include an updated basis of payment clause, which

captures the cost reimbursable basis of payment for the initial portion of the

contract, which is now complete, and the fixed price basis of payment of the

remainder. Refer to Annex 6, Section 6.1.8 Provisional Price, (To be released

soon) of this Guide.

Documentation,

Justification,

Authorization

 Ensure all decisions throughout this process have been documented, justified

and authorized in the procurement file, as required.

An Example: Provisional Pricing

There is a requirement to build six ships for Canada but the cost per ship cannot be reasonably estimated at

the start of the contract. This being the case, the contractor is reluctant to commit to a fixed price. Provisional

pricing offers a means to transition a contract to a fixed price, once greater certainty exists. Initially, a cost

reimbursable basis of payment is used to establish the price.

It is believed that once two ships have been constructed, the contractor will be in a reasonable position to

estimate its costs for the remainder of the contract. As such, completion of the two ships represents a critical

performance milestone for the conversion of the basis of payment from cost reimbursable to fixed price.

Once the contractor has constructed the first two ships, the contractor advises Canada that this critical

performance milestone has been reached, and provides a cost submission, estimating the contractor’s cost

to construct the remaining four ships. The cost base is expected to benefit from the experience gained from

constructing the initial two, taking into account learning curve and production efficiencies. This cost

submission provides a basis for fixed pricing negotiations.

When the reasonableness of the estimated costs has been established, profit is negotiated, in accordance

with Section 5.2 Development of an Appropriate Profit, and the total fixed price (cost plus profit) for the

remaining four ships is now established.

The contracting officer amends the contract to update the basis of payment.

84 | Page Public Services and Procurement Canada September 30, 2019

4.2 ECONOMIC PRICE ADJUSTMENTS (EPAS) AND FOREIGN CURRENCY ADJUSTMENTS

(FCAS)

Definition:

Economic Price Adjustments and Foreign Currency Adjustments are basis of payment that address contract

elements that pose significant risk to the contractor, but are beyond the contractor’s control:

 EPAs mitigate a significant risk posed by market fluctuations associated with a contractors’ input costs

related to a specific commodity (commodity risk).

 FCAs mitigate a significant risk posed by currency fluctuations related to a foreign-based source of supply

(foreign exchange risk).

When to use:

When significant uncertainty exists in the market, such that:

 The contractor’s commodity pricing is highly volatile or

 A critical and designated source of supply for its input costs are exposed to foreign currency risk.

Introducing commodity-specific economic price adjustments and foreign currency adjustments into the

contract allow Canada to secure supply without undermining the financial viability of the contractor.

EPAs/FCAs are designed to cope with the economic uncertainties that threaten long-term fixed-price

arrangements. If markets are truly volatile, many firms may be unwilling to submit a fixed price offer without

EPA protection.

EPAs/FCAs provide for both price increases and decreases to protect the Government and the contractor

from the effects of market fluctuations. The more volatile the market, the greater the benefits that can be

derived from EPAs/FCAs.

Details on US guidance can be found at https://www.acquisition.gov/content/16203-fixed-price-contracts-

economic-price-adjustment, including Application, Limitations and Contract clauses.

Factors to consider:

The actual impact on input costs should be subject to direct validation, when making payment.

These pricing strategies can discourage change and innovation, as they fully compensate the contractor for

adhering to the existing mode of production or source of supply and the contractor’s supply options should

be considered for cost-effective alternatives.

Hedging by the contractor is another approach to deal with commodity risk or foreign exchange risk.

Compensating for hedging should be considered as an acceptable cost, as an alternative to an EPA or FCA.

“All entities are exposed to some form of market risk. For example, gold mines are exposed to the price of

gold, airlines to the price of jet fuel, borrowers to interest rates, and importers and exporters to exchange rate

risks. Many financial institutions and corporate businesses (entities) use derivative financial instruments to

85 | Page Public Services and Procurement Canada September 30, 2019

hedge their exposure to different risks (for example interest rate risk, foreign exchange risk, commodity risk,

etc.).”

If the contractor engages in hedge accounting, please seek professional advice on cost acceptance for

government contract pricing.

Process Steps

Process Overview

Determine

Whether a

Provision for an

EPA or FCA is

Required and

Document and

Justify the

Decision

• Supporting documentation to justify the use of this provision should be included

in the appropriate procurement file.

• When a competitive bidding process is used, the proposed EPA or FCA

provisions must be clearly explained in the solicitation documents. In all other

situations, EPA or FCA provisions should be agreed to during negotiation of the

initial or base year contract price.

• The advice of a price advisor (from PSSS) is recommended in the development

of any EPA or FCA provisions, or for their implementation.

Establish the

Fixed Price

• See Fixed Price Basis of Payment Section (4.1.1 Fixed Price) for more

information.

“Hedge accounting,” From Wikipedia:

https://en.wikipedia.org/wiki/Hedge_accounting#Why_is_hedge_accounting_necessary?

86 | Page Public Services and Procurement Canada September 30, 2019

4.3 CEILING PRICE AND LIMITATION OF EXPENDITURE

Project budgets could be exceeded if actual costs or volumes are greater than estimated in a fixed unit rate

or cost reimbursable contract. This risk can be mitigated by the use of price control mechanisms such as a

ceiling price or limitation of expenditure.

• A ceiling price is used when the level of effort or quantity can be realistically estimated and there is full

agreement between the parties as to what constitutes the prescribed work. No additional compensation

is provided to the contractor, whether or not costs exceed the ceiling price.

• A limitation of expenditure clause is typically used for service requirements where the level of effort

cannot be accurately estimated at the outset in cost-reimbursable and fixed unit rate type contracts.

“Expenditure” in this context, refers to payments made by Canada to the contractor. The clause limits

Canada’s total liability under a contract and establishes a notification and reporting requirement on the

part of the contractor. The contractor can be requested to complete a portion of the work to the extent

that the allocated funding permits.

87 | Page Public Services and Procurement Canada September 30, 2019

4.4 INCENTIVES

4.4.1 CHARACTERISTICS

What is an incentive?

An incentive is a tool used in contracting to maximize value to both the Government of Canada and the

contractor by motivating and rewarding superior

performance, when required.

When appropriately structured, incentives can

allow Canada to focus the contractor on the areas

of critical importance to a procurement such as

technical performance and schedules. Incentives

also allow Canada to share in cost savings and

risks while affording the contractor an opportunity

to earn more profit.

For additional information on the benefits of

incentives, please refer to Annex 5.1.6 (Discussion

Paper: Contract Incentives to Encourage and

Reward Enhanced Value to Canada).

When to Use

Incentives can be used:

• In both competitive and non-competitive procurements; and

• With all basis of payment types to reward superior contract performance which exceeds the base

standards established in the statement of requirement.

Please Note

• This section contains new guidance with respect to the use of incentives in Canada.

Did You Know?

• Incentives can be used in both competitive

and non-competitive procurements.

• Incentives can also be used in with all basis of

payment types to reward superior contract

performance which exceeds the base

standards established in the statement of

requirement.

88 | Page Public Services and Procurement Canada September 30, 2019

When Not to Use

Incentives may not be appropriate or effective for all contracts, particularly when:

• The contractor is already receiving a fair profit on the contract.

• The contractor will achieve the target performance criteria without an incentive.

• The contractor will not be motivated by the incentives to achieve the target performance criteria.

• There is minimal to no value to Canada for the contract to perform beyond the base standards established

in the statement of requirements.

Factors to Consider

• The performance objectives associated with the incentive should be balanced and aligned to the most

important objectives of the procurement. Rewarding a contractor for simply meeting the contract

requirement should be avoided.

• An assessment is needed to ensure the incentive(s) will, in fact, motivate a contractor to perform (e.g.,

follow-on business, growth, maintaining or retaining a production capability, and positive past

performance information).

 Consideration should be given to whether or not the contractor has control over the achievement of the

incentives and whether the performance objectives can be measured and verified, which includes

ensuring that the contractor’s systems can adequately track the information required for measurement.

• The benefits of the contract outcomes should exceed the combined cost of the incentives and cost of

their administration.

• The structure and administration of incentives should be as simple as possible. This includes avoiding

the use of too many incentives in a single contract. See the section on Multiple Incentives and Competing

Objectives below.

• If there are unstable market conditions and the procurement includes the use of an Economic Price

Adjustment/Foreign Currency Adjustments (EPA/FCA), the EPA/FCA must be excluded from determining

the incentives. (See Section 4.2 Economic Price Adjustments and Foreign Currency Adjustments for

more information).

• The involvement and active communication with all stakeholders including program, technical,

acquisition, and price advisors in the incentive planning process is essential.

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Timing

Establishing incentives and how they will be applied, measured and tracked should be decided before a

contract is put into place and when the priorities and most important objectives of the procurement are

defined. It is important to stress, however, that planned incentives can be applied at multiple stages within a

procurement.

Non-Competitive Contracts: With respect to non-competitive contracts, incentives can be introduced at the

solicitation phase or during negotiations of a contract price and applied anytime throughout the life of a

contract.

Competitive Contracts: When it comes to competitive contracts, it is recommended that incentives be

introduced in the solicitation. If there are uncertainties in terms of the application of incentives, specific

incentive parameters can be stated in the solicitation and then negotiated prior to contract award.

There will be times, however, particularly in contracts where the scope and performance of the goods and/or

service being contracted has too much uncertainty and will become clearer over time. In these situations, the

procurement team may have more information and, as a result, may be in a better position to apply incentives

appropriate for the contract. In these cases, the incentives to a contract may be in the best interest of all

parties. With respect to competitive contracts, negotiations would need to be undertaken within the

parameters established in the solicitation. Considerations should be given to the limitations established by

the various trade agreements.

90 | Page Public Services and Procurement Canada September 30, 2019

4.4.2 INCENTIVE TYPES

There are a number of incentive options available. The following is a list of incentives for which additional

guidance has been provided in the Guide. This is not to be considered an exhaustive list of incentives, but

rather a starting point from which to establish a base incentive. Table7 below provides a brief description of

the following incentive types:

• Technical performance incentives;

• Schedule performance incentives;

• Awards fees;

• Non-financial incentives; and

• Cost reimbursable with target cost incentive – This basis of payment provides incentives for contractors’

to control costs - see Section 4.1.3.3 Cost Reimbursable with Target Cost.

Table 7: Incentive Types

Section of

Guide

Incentive

Type

Description

Objective

4.4.2.1

Technical

Performance

Incentives

The contractor is provided with the

opportunity to earn additional profit upon

achievement of one or more technical

performance goals.

• Superior technical

performance;

• Performance reliability;

• Improved service delivery;

and

• Increased availability.

4.4.2.2

Schedule

Performance

Incentives

The contractor is provided with the

opportunity to earn additional profit upon

achievement of one or more targeted

delivery dates.

• More timely delivery

91 | Page Public Services and Procurement Canada September 30, 2019

Section of

Guide

Incentive

Type

Description

Objective

4.4.2.3

Award fees

An award fee establishes a pool of funds

available to the contractor in the event

the contractor exceeds pre-established

performance elements.

Award fee arrangements are

appropriate when important elements of

performance cannot be objectively or

quantitatively measured.

• To achieve superior

performance in areas that

can only be measured

subjectively.

For example:

• Superior customer

service;

• Management

responsiveness; and

• Quality assessments.

4.4.2.4

Non-

Financial

Incentives

The contractor is incented to achieve

superior performance to earn non-

monetary rewards that are not part of a

contractor’s pay.

• To exceed overall contract

performance objectives.

Multiple Incentives and Competing Objectives

It is possible to incent only one objective or multiple objectives in a single contract. While it can be

complex, effectively balancing incentives across multiple objectives can help avoid the unintended

consequence of sacrificing the performance of certain objectives. For example, a contractor may decide

to sacrifice the quality of a product if the only incentive in place in the contract is tied to product delivery

within a scheduled target date.

For multiple incentives to work as intended within a contract and to avoid competing objectives, it is

important to ensure that goals are not in conflict and that the different incentives are appropriately

balanced with consideration of the contract’s overarching priorities and objectives.

Examples of competing objectives:

• Cost versus Technical Performance

It is likely that the cost to build and service a ship for achieving greater number of days at sea is

higher with each additional day at sea.

92 | Page Public Services and Procurement Canada September 30, 2019

• Technical Performance versus Schedule

It will likely take longer to build and test a missile that will travel farther and be more accurate.

• Schedule versus Cost

In the ship building example, additional project work could result in overtime and higher labour costs

to meet delivery timelines.

On the other hand, a ship builder incorporating new technology in production might be able to deliver

early and reduce overall project costs.

Selecting the Appropriate Incentive

To determine which incentive is best for a procurement it is important to start by assessing how the cost,

schedule and technical risks associated with the contract have been allocated in the basis of payment. This

would include consideration of the following two questions:

• How much risk and responsibility has already been assumed by the contractor for the cost of the

performance?; and

• How much profit is already included in the contract to achieve the performance objectives?

The decision to use incentives and to determine which incentives to use requires professional judgement

by the contracting officer. There is no exact recipe on the necessary pricing elements for each

procurement. Instead, analysis, understanding and professional judgement are required.

See Section 4.5 (Pricing Approach Selection) for further considerations to considerations related to the choice

of Basis of Payment and Incentives.

93 | Page Public Services and Procurement Canada September 30, 2019

4.4.2.1 TECHNICAL PERFORMANCE INCENTIVES

Definition

Technical performance incentives include the technical goals that have to be achieved in performing the

contract and to bring value to Canada. These goals can be expressed in the form of technical criteria as well

as specifications and requirements. Incorporating technical performance incentives in a contract aims to

achieve and/or improve technical parameters related to the procurement that are of critical importance to

Canada. Upon achievement of one or more specified levels of technical performance, the contractor is

provided with the opportunity to earn additional profit.

When to Use

• When performance excellence and improvements would add value or are of critical importance to the

procurement and to Canada (e.g., quality, timeliness, and technical ingenuity).

• When it is possible to establish discrete, objective and measurable incentive targets applicable to

technical performance.

• In all forms of pricing approaches ranging from fixed price to cost reimbursable.

• In combination with and in addition to other incentive plans related to cost, delivery and performance.

94 | Page Public Services and Procurement Canada September 30, 2019

Factors to Consider

Risks

Benefits

• Complicated to apply because it can be difficult

to establish an appropriate incentive formula

and to ensure it is fair with an optimal allocation

of risk and reward to incent the contractor to

deliver on performance objectives (e.g., cost

efficiency, technical sufficiency).

• Resources are required to monitor, manage

and evaluate.

• Can provide a practical way to motivate

excellence in contractor performance or to

meet technical performance criteria critical to

Canada.

• When established without a corresponding

cost control incentive or process, it can

potentially result in cost inefficiencies.

• It is effective only for incenting performance for

criteria that are objective. It should not be used

on performance criteria that require

professional judgement to assess actual

performance. See Section 4.4.2.3 (Award Fees)

for incentives related to subjective criteria.

95 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop and

Define the

Performance

Criteria and

Parameters

• The selection of performance criteria and parameters relies heavily on contract

technical considerations.

• Selection of performance criteria and parameters are based on the technical

specifications in the procurement requirements and technical proposals of the

contractor.

• Choose the important elements of performance from which Canada would benefit

from improvements such as future cost savings related to production, operational

efficiencies and increased capabilities.

• The benefit to Canada of improving the minimum requirement must be clear and

definitive. There are no set rules for defining this benefit, and the criteria will vary

based on the procurement. They must be achievable at the minimum acceptable

level.

Define the

Performance

Range and

Target

• Competitive Contracts: It is necessary to ensure that the performance levels are

formally accepted by the client and are reasonable for the potential suppliers.

• Non-Competitive Contracts: It is necessary to ensure that the performance levels

are formally accepted by both the client and the proposed contractor.

• Establish three targets:

• Standard Performance Target: Level of performance the contractor will likely

achieve with normal technical and management effort.

• Minimum Acceptable Performance: Level of minimum performance required

to meet the contractual performance obligation. This level must be

achievable and acceptable if only minimum performance levels are

achieved.

• Maximum Performance: Level of maximum performance that will add value

to the procurement. Above the maximum value, no further incentives are

required because it will no longer add value to Canada. This level should not

be set so high that a major technological breakthrough would be necessary

to achieve it.

96 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop the

Incentive

Formula

• There are many options available for Performance Incentive formulas. The

following are the two most commonly used formulas:

Variable Payment

• Rewards an increase on a pro rata basis for each level of improvement

above the standard performance target level up to the maximum

performance level.

• A pre-established formula determines the value to Canada of each

incremental increase/decrease in performance to the maximum and

minimum levels.

• A straight-line formula is the most standard method of applying this

incentive.

Target Incentive Fee

• Rewards a contractor a set fee for meeting specific performance targets.

• Performance targets that add value to Canada are clearly outlined in the

contract along with the corresponding fee percentage or dollar value.

Establish

Methodology for

Validation of

Performance

• Define the validation process for the establishment of the levels to be achieved.

• Ensure all parties clearly understand and accept how performance will be

measured for the purpose of assessment.

• Validation programs and procedures should be well documented including details

such as timing, methods of testing, locations for testing, testing conditions,

number of tests and parties to observe testing.

Documentation,

Authorization

and

Incorporation

into Contract

• Performance levels, ranges and validation methods for determining whether or

not performance has been achieved must be documented in the contract.

• Ensure all parties clearly understand and accept the performance measurement

criteria.

• Clearly define the incentive targets and formulas along with the dollar or

percentage values to be awarded at each increment or target.

See Section 3.3 (Documenting & Justifying Key Price Decisions) for further details.

97 | Page Public Services and Procurement Canada September 30, 2019

Examples

Example 1: Variable Payments Incentive

There is a contract for construction and ongoing cost of operations of a Canadian Coast Guard ship that

indicates that:

• The standard number of days required by the Canadian Coast Guard for the ship to be available to be at

sea is 150 days.

• The minimum acceptable period at sea is 140 days.

• The maximum period from which the Canadian Coast Guard could benefit from the ship being at sea is

200 days.

• The base payment amount is $10,000,000.

• The available variable payments incentive amount is $500,000.

The difference between the maximum number of days at sea and the standard number of days is 50 (i.e. 200

less 150). Thus, the contractor has an opportunity to receive $10,000 more (i.e. $500,000 divided by 50

days) than the base pay of $10,000,000, for each additional day of being able to stay at sea above the target.

Similarly, the base pay could be reduced by the same amount for each day at sea below the target number

of days up to the point where the minimum requirements are reached.

Scenario 1

If the assessment of actual performance on the technical requirement shows that the coast guard ship could

be at sea for as many as 180 days, then the calculation of total contract price will be as follows:

• base payment = $10,000,000;

• variable amount (for each day of variance from the target period) = $10,000;

• standard target period as per requirements = 150 days;

• actual period for which the ship could stay at sea = 180 days;

• payment adjustment = (180 days – 150 days) x $10,000 = $300,000; thus

• total price = $10,000,000 + $300,000 = $10,300,000.

98 | Page Public Services and Procurement Canada September 30, 2019

Example 1: Variable Payments Incentive (continued)

Scenario 2

If the assessment of actual performance on the technical requirement shows that the coast guard ship could

be at sea for no more than 145 days, then the calculation of total contract price will be as follows:

• base payment = $10,000,000;

• variable amount (for each day of variance from the target period) = $10,000;

• standard target period as per requirements = 150 days;

• actual period for which the ship could stay at sea = 145 days;

• payment adjustment = (145 days – 150 days) x $10,000 = - $50,000; thus

• total price = $10,000,000 - $50,000 = $9,950,000.

Example 2: Target Performance Incentive

The same contract example presented above is used, but in this instance, target incentives have been

established for achievement of 180 days at sea valued at $150,000 and of 200 days at sea valued at

$300,000.

Scenario 1: Contractor achieves 180 days

• Base payment = $10,000,000;

• Target incentive = $150,000; and

• Total price = $10,000,000 + $150,000 = $10,150,000.

Scenario 2: Contractor achieves 200 days

• Base payment = $10,000,000;

• Target incentive = $300,000; thus

• Total price = $10,000,000 + $300,000 = $10,300,000.

99 | Page Public Services and Procurement Canada September 30, 2019

4.4.2.2 SCHEDULE PERFORMANCE INCENTIVES

Definition

Schedule performance incentives involve rewarding the achievement of delivery timeline goals set in the

contract that are of critical value or provide additional value to Canada. The contractor is provided with the

opportunity to earn additional profit upon achievement of one or more targeted delivery dates.

When to Use

• When it is of critical importance or value to Canada to receive a good or service in a timely manner.

• When it is feasible to determine objective incentive targets applicable to delivery times.

• In all forms of pricing approaches ranging from fixed price to cost reimbursable.

• In combination with and in addition to other incentive plans related to cost, delivery and performance.

Factors to Consider

Risks

Benefits

• Canada’s action can both positively or

negatively impact contractor performance.

For example, a schedule performance

incentive could compromise the quality of

work.

• When established without a corresponding

cost control incentive or process, it can

potentially result in cost inefficiencies.

• Practical way to achieve required timelines.

• Practical way to ensure matters of an urgent

nature are delivered on time.

100 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Establish the

Schedule

Requirements

• The delivery requirement must be realistic and cannot be based on dates that are

impossible to achieve. At the same time, it must not be so easy that the contractor

could achieve the dates with minimal effort.

• Establish flexibility in the incentive with the use of minimum, maximum and target

dates, where possible.

Define the

Target Dates

and Date

Ranges

• Target dates are the delivery dates of critical importance to the performance of the

contract:

o One Target Date: The delivery incentive will provide a bonus payment simply

if the target date is met and no bonus payment if the date is not met.

o Target Date Range: The earlier the completion of performance the greater

value to Canada and the greater the incentive up to a maximum acceptable

delivery period.

Link Schedule

Requirements to

Performance

Requirements

• It must be clear that the delivery incentive is also contingent on the specifications

of the contract being met.

• If specifications are not met and further work is required to meet contract

specifications, the delivery time is measured to the point the work meets the

specifications.

101 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Establish

Incentive

Formula

Variable Payment

• Rewards increase on a pro rata basis for each time period closer to the earliest

delivery date desired.

• If desired, penalties increase on a pro rata basis for each time period after the

standard delivery target up to the latest acceptable delivery date.

• Pre-established formula determines the value to Canada of each incremental

increase/decrease in schedule to the maximum and minimum dates.

• A straight-line formula is the most standard method of applying this incentive.

Target Incentive Fee

• Rewards a contractor a set fee for meeting a specific schedule target.

• Schedule targets that add value to Canada are clearly defined in the contract

along with the corresponding fee percentage or dollar value.

Documentation,

Authorization

and

Incorporation

into Contract

• The dates or date range (earliest delivery date desired, standard delivery target,

and latest acceptable delivery date) must be clearly documented in the contract.

• The time intervals and formula over which the delivery incentive will be paid must

also be clearly documented and included in the contract.

• See Section 3.3 (Documenting & Justifying Key Price Decisions) for further details.

102 | Page Public Services and Procurement Canada September 30, 2019

Examples

Example 1: Variable Payment Incentive

• A contract has a base payment amount of $500,000.

• The target delivery time for the requirements was negotiated as 50 weeks, with the latest and earliest

acceptable completion dates being 55 and 40 weeks, respectively, from the outset of the contract.

• A variable incentive (and penalty) was established at $5,000 per week for completion of the work in

advance (or behind) the target delivery time, up to a maximum incentive of $50,000. This approach

applies a straight line formula to the incentive, up to the established maximum.

Scenario 1

If the contractor delivered on the contract requirements in 43 weeks which is earlier than the target delivery

date by seven (7) weeks, then the calculation of total contract price would be as follows:

• Base payment = $500,000;

• Variable amount (for each week of variance from the target delivery date) = $5,000;

• Standard target period as per requirements = 50 weeks;

• Actual delivery period = 43 weeks;

• Payment adjustment = (50 weeks – 43 weeks) x $5,000 = $35,000; thus

• Total price = $500,000+ $35,000 = $535,000.

Scenario 2

If actual delivery on the contract requirements was in 54 weeks, which is later than the target delivery date

by four (4) weeks, then the calculation of total contract price would be as follows:

• Base payment = $ 500,000;

• Variable amount (for each week of variance from the target delivery date) = $5,000;

• Standard target period as per requirements = 50 weeks;

• Actual delivery period = 54 weeks;

• Payment adjustment = (50 weeks – 54 weeks) x $5,000 = -$20,000; thus

• Total price = $500,000 - $20,000 = $480,000.

103 | Page Public Services and Procurement Canada September 30, 2019

Example 2: Target Schedule Performance Incentive

• A contract has a based amount of $500,000.

• The target delivery time is 50 weeks, and will equate to a $50,000 incentive if met, for a total payment

amount of $550,000.

• If the delivery takes place after the target delivery date, the incentive of $50,000 is not paid, and the

maximum payable for the work, if and when complete, will be $500,000.

104 | Page Public Services and Procurement Canada September 30, 2019

4.4.2.3 AWARD FEES

Definition

Award fee incentives are used to motivate contractors to perform in areas critical to a procurement’s success

that are subject to judgment and qualitative measurement and evaluation. The award fee incentive is a pool

of funds, up to a maximum of which the contractor can earn, in addition to any profit or base-fee, upon an

evaluation of performance against pre-established criteria.

Award fees can be applied to all forms of pricing approaches ranging from fixed price to cost reimbursable

and in a combination with other incentives.

Figure 7: Award Fees

Profit

Cost

Max

Fee

Min

Fee

Target Cost

100/0

Share Line*

Base Fee or Profit

Award Fee Pool

*100 = Canada's share, 0 = contractor's share

105 | Page Public Services and Procurement Canada September 30, 2019

When to Use

• When evaluating a performance that is subjective in nature and it is not possible or feasible to determine

objective incentive targets applicable to cost, schedule or technical performance.

• When the contract amount, performance period, and expected benefits warrant the cost of the additional

administrative and management effort.

• When there something to be gained by motivating excellence in performance including quality, timeliness

and technical ingenuity for cost reimbursable contracts and cost-effective management.

• In all forms of pricing approaches ranging from fixed price to cost reimbursable and in combination with

other incentives.

Factors to Consider

Risks

Benefits

• Significant administrative burden. Requires

resources to monitor, manage and evaluate.

• Challenging to align award fee earnings with

contract performance outcomes.

• Canada’s actions can both positively or

negatively impact contractor performance.

• Low qualitative ratings can potentially cause

tension with contractors.

• If multiple evaluation periods are in place

over the term of the contract, there is a risk

of disproportionate allocation of the total

award-fee pool over the evaluation periods.

A greater portion of award fees could be

earned in the early stages of the contract,

which could lower the contractor’s motivation

and lead to poor performance towards the

end of the contract.

• Awards fees can be a flexible way to motivate

excellence in contractor performance.

• Can motivate a contractor to concentrate

resources in areas critical to a program’s success.

• A fixed price contract by nature includes a

significant cost control incentive. Award fees can

focus the contractor’s efforts on technical and

schedule performance.

106 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Prepare and

Document an

Award Fee Plan

• The award fee plan structures how the contractor’s performance will be

evaluated and is aligned with the government’s strategy, goals and objectives

for the procurement.

• Not all award fee contracts will be structured and administered in the same way.

• All details of an award fee plan must be documented and incorporated in the

procurement file.

• The plan must clearly communicate the key factors within an award fee

incentive, which includes the award fee amount and evaluation details such as

evaluation periods, teams, categories, criteria, ratings and process.

Develop the Award

Fee Amount

• The award fee must incorporate the following factors:

o Value to Canada for exceptional performance;

o Amount required to sufficiently motivate the contractor to achieve

exceptional performance; and

o Complexity of the work and the resources required for contract

performance.

• There are a number of different approaches to establish the award fee pool

such as a review of previous and current contracts for similar requirements,

awarding percentages based on risk and the importance of the established

evaluation criteria, the total value of the contract, and cash flow analysis.

• The award fee must be earned. The contractor begins with 0% of the available

award fee and must work up to the evaluated fee.

107 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Develop the

Evaluation Period

• The contract performance can be divided into evaluation periods when

required. It is possible to have one or multiple evaluation periods.

• Avoid evaluation periods that are too short in length, which can lead to

excessive administrative burden on the contract.

• Ensure that there is sufficient amount of the award fee available for payment at

contract completion to motivate contractor performance through to the end of

the contract.

Establish the

Evaluation Team

• The number of members forming the evaluation team and their qualifications

will depend on the nature, dollar value and complexity of the acquisition.

• An appropriate balance between technical expertise and procurement expertise

should be considered.

• The evaluation team members must be familiar with the contract and the work

being performed, the evaluation categories, criteria and plan. The evaluation

team must also have the time available to commit to the evaluation in a timely

manner.

Develop the

Performance

Categories

• Performance categories emphasize the most important needs and goals of the

procurement.

• It is not necessary to include all functions required by the Statement of Work in

the evaluation plan.

• Spreading the award fee over a large number of categories dilutes the

emphasis and takes the focus away from the key areas of success.

• Examples of performance categories include output factors such as cost

control, program management, service quality and schedule.

108 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Define the

Evaluation Criteria

and Ratings

• Three to five standard criteria are recommended to assess the contractor’s

performance in a performance category.

• Point/Score ranges are assigned to each criterion, and the overall score on a

performance category is determined by the total points from each criterion

within the category.

• In the event that certain criteria are of higher importance than others, relative

weighting can also be assigned to the criteria.

• Examples of criteria include the following:

• For cost control performance category:

o Ability to meet cost estimate;

o Cost control program;

o Timeliness of cost problem communications; and

o Establishment and monitoring of staff utilization goals and standards.

 For a program management performance category:

o Program planning abilities;

o Responsiveness to program and technical issues; and

o Ability to anticipate and assess program and milestone changes

independently.

• An example assessment of the above criteria would be a range assessment

with pre-established scores for each criteria:

o Unsatisfactory 1-50

o Satisfactory 51-60

o Good 61-75

o Very Good 76-90

o Excellent 91-100

109 | Page Public Services and Procurement Canada September 30, 2019

Process Steps

Process Overview

Establish the

Evaluation Process

• Keep the process as clear and as simple as possible.

• Decide and document at what points the evaluation will be performed and

clearly define the evaluation periods. Ensure the evaluation is done in a fair and

timely manner.

• Determine how evaluation information will be gathered.

• Determine how often information will be obtained for review.

• Establish a communication process for the evaluation process and results

including required response times.

Evaluate

• The evaluation must be carried out in accordance with the award fee plan as

documented in the contract.

• Timely feedback based on the evaluation is provided to the contractor to

address strengths and weaknesses.

Documentation,

Authorization and

Incorporation into

Contract

• Ensure the evaluation plans and procedures are communicated to all parties.

• Plans should be signed by both Canada and the contractor. This should ideally

take place prior to the commencement of a performance period and included

as an attachment.

• A predetermined period should be established for a review of the evaluation

plan where modifications can be made.

• Authorization must include evidence of program management acceptance as

well as authorization from the appropriate contracting level.

• Formal documentation of the evaluation, evaluation process and final ratings

should also be maintained.

• See Section 3.3 (Documenting & Justifying Key Price Decisions) for further

details.

110 | Page Public Services and Procurement Canada September 30, 2019

Example: Cost-Plus Award Fee Contracts

• A five (5) year contract is awarded with estimated costs of $10,000,000.

• A base fee total estimated costs, i.e. $200,000, which will be earned upon completion of the contract by

the contractor regardless of the results of the performance evaluation.

• An award fee amounting to up to another 10% of total estimated costs, i.e. $1,000,000, is available to

the contractor providing it achieves pre-established performance criteria.

• Performance evaluations are conducted annually, therefore the award fee may be earned on an annual

basis across the five-year contract.

Total Estimated Costs

$10,000,000

Base Fee

$200,000

Award Fee Pool

$1,000,000

Total potential fee (profit) available to the contractor

$1,200,000

Contract Period

5 years

The allocation of the total award fees pool over the five periods is uniform, which means that the maximum

amount of the award fee that could be earned in one evaluation period is the same as for the other periods

because the risks and type of work to be performed on the contract is similar throughout the whole contract

period. The calculations are as follows:

Number of Evaluation

Periods

period

Duration of each

evaluation period

1 year

Allocation of Award Fee

pool over evaluation

periods (%)

20%

Maximum amount of

award fee that could be

earned in each period

$200,000

111 | Page Public Services and Procurement Canada September 30, 2019

Example: Cost-Plus Award Fee Contracts (continued)

If the risks and type of work change throughout the duration of the contract then the allocation of the award

fee pool over the evaluation periods might be unequal as shown in the following table:

Number of Evaluation

Periods

period

Duration of each

evaluation period

1 year

Allocation of Award Fee

Pool over Evaluation

periods (%)

15%

35%

20%

25%

Maximum amount of

award fee that could be

earned in each period

$ 150,000

$ 350,000

$ 200,000

$ 50,000

$ 250,000

112 | Page Public Services and Procurement Canada September 30, 2019

Example: Fixed Price Award Fees Contracts

• A five (5) year contract is awarded with a fixed price of $10,000,000.

• An additional amount of up to $1,000,000 in award fees is available to the contractor providing it achieves

pre-established performance criteria.

• Performance evaluations are conducted annually, therefore the award fee may be earned on an annual

basis across the five-year contract.

• If the allocation of the award pool is uniform over the five evaluation periods, the contractor has an

opportunity to earn up to 20% of the maximum award fee at each of the five evaluation periods.

• If the allocation of the award pool is not equal due to differences in risks and type of work being conducted

in each year, the maximum amount that could be earned at each evaluation period could vary from year

to year.

The following table shows the dollar amounts for the example on Fixed Price Award Fee (above) and

Weighted Award Fee (below), which follows below.

Total Estimated Costs

$ 10,000,000

Award Fee Pool

$ 1,000,000

Contract Period

5 years

113 | Page Public Services and Procurement Canada September 30, 2019

Example: Fixed Price Award Fees Contracts (continued)

Number of Evaluation

Periods

period

Duration of each

evaluation period

1 year

Allocation of Award Fee

Pool over evaluation

periods (%)

20%

Maximum amount of

award fee that could be

earned in each period

$200,000

Unequal Allocation of

Award Fee Pool over

evaluation periods (%)

15%

35%

20%

25%

Maximum amount of

award fee that could be

earned in each period

$150,000

$350,000

$200,000

$50,000

$250,000

Unlike cost-plus award fee contracts, fixed price award fee contracts do not provide for a base fee since profit

is already included into the fixed price. Because the profit that is already included in the fixed price is designed

to provide maximum incentive for the contractor to be efficient in terms of cost, an award fee in this type of

contract might be used to incent other areas such as technical and schedule performance.

114 | Page Public Services and Procurement Canada September 30, 2019

Weighted Award Fee

A weighted award fee could be used to determine the actual award fee earned for the evaluation period in

both cost-plus award fee and fixed award fee contracts. In both cases, relative weights are assigned to the

evaluation criteria based on their relative importance in the contract.

In the example below, contractor performance is assessed in three main areas: technical, management, and

cost.

• The technical area is assigned a 50% weight; management is assigned 30%; and cost is assigned a 20%

weight, which indicates that technical performance is of the greatest importance.

• Each area is scored (out of 25 points).

• The relative weight of each area is applied to the score rate to arrive at a weighted result for each area,

and then these weighted results are totalled to arrive at an overall performance rating for the period.

The following table outlines for the mechanics of this calculation:

Evaluation Criteria for

Each Period

Relative

Weight of the

Criterion

Score (/25)

Description of the

score range

Weighted Results

Technical Area

50%

17.0

Good

0.5*17=8.5

Management Area

30%

21.6

Excellent

0.3*21.6= 6.48

Cost

20%

19.5

Very Good

0.2*19.5=3.9

Total

100%

Very Good

8.5+6.48+3.9 = 18.88

The overall performance rate for the period is 18.88 points out of 25, which corresponds to 75.52%

(=18.88/25) of the maximum performance for the period.

Therefore, if the maximum award fee for the period is $200,000, then the actual award fees earned for the

period would be $200,000*75.52% = $151,040.

115 | Page Public Services and Procurement Canada September 30, 2019

4.4.2.4 NON-FINANCIAL INCENTIVES

Non-financial incentives are not readily used in Canada and do not directly impact the profitability of a

contractor in value but contribute to future contractor profitability. For more information on non-financial

incentives please refer to Annex 5.1.6 (Discussion Paper: Contract Incentives to Encourage and Reward

Enhanced Value to Canada).

116 | Page Public Services and Procurement Canada September 30, 2019

4.5 PRICING APPROACH SELECTION

The pricing approach, which involves the selection of an appropriate basis of payment and consideration of

incentives will establish how the contractor is compensated. In order to determine which pricing approach is

best for a contract, it is important to assess how the cost, schedule and performance risks associated with

the contract should be allocated. This would include consideration of the risks and responsibilities that are

appropriate for the contractor to assume in the performance of the contract and the level of profit appropriate

for delivering on the requirements outlined in the contract.

The following figure summarizes the relationship between cost control risks and the contractor’s opportunity

for profit for the main basis of payment types. The figure demonstrates that the risk of cost control increases,

the opportunity for contractor profit increases to compensate contractors for accepting the additional cost

risk.

Figure 8: Pricing Approaches

Fixed Price

Cost reimbursable with target cost (maximum price)

Fixed Unit Rate

Cost reimbursable with fixed fee

Cost reimbursable with target cost (no maximum price)

Cost reimbursable

High HIgh

Low Low

Contractor Cost

Control RIsk

Contractor Profit

Opportunity

117 | Page Public Services and Procurement Canada September 30, 2019

4.5.1 SUMMARY TABLE OF BASIS OF PAYMENT TYPES

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Fixed Price

Fixed price contracts

provide for a price not

subject to any

adjustment. The

contractor is paid a

definite sum of money

for carrying out the

work regardless of the

costs incurred.

• The work scope is

clearly defined.

• Contractors are

experienced in

meeting the

requirement.

• Market conditions

are stable.

• Financial risks are

not considered

significant.

• It is efficient for the

contractor to bear

cost risks.

• Contractor bears risk

of costs exceeding

the target or changes

in prices of inputs.

• There is certainty of

price.

• There is a simple

pricing structure.

• It allows comparison

in competitive market

testing.

• It has the lowest

administration costs.

• If parameters of

project are difficult

to specify before

contract award,

additional

contingency factors

will be required

resulting in a higher

fixed price to cover

financial risk

exposure.

• Variations to

contract or scope

result in potential

loss in benefit of

fixed pricing.

Competitive

Fixed price established

through competitive

bids

Non-Competitive

Fixed price typically

established through

negotiations of cost

base (SACC 1031-2)

and additional profit

(Section 5.2:

Development of An

Appropriate Profit), or

through benchmarking.

A price/cost validation

exercise should be

completed prior to

contract award.

• Used for commercial

goods and/or

services.

• Generally not

appropriate for

research and

development projects

or long-term

developmental

contracts with

significant “project

risk” that will translate

into price premiums.

118 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Fixed Unit Rate

Contractor is paid a

price per unit applied

to actual inputs (e.g.,

labour hours, machine

hours) incurred in

performance of the

work. The price per

unit is predetermined

and includes

components for direct

costs, indirect costs

and profits.

• When it is not

possible to estimate

in advance the

extent or duration

of the work.

• When there is

provision for

adequate controls

to ensure that the

contractor is not

using inefficient

methods.

• It facilitates volume

variations.

• There is visibility of

costs.

• It enables Canada to

participate in cost

savings when actual

inputs are lower than

expected.

• There is budget

uncertainty for

client department.

• It can be very

administratively

burdensome.

• Allowable costs;

• Profit and unit rate;

• Ceiling price or

limitation of

expenditures; and

• Validation of costs

claimed.

 Typically used for

service contracts.

Cost Reimbursable

with No Fee

Provides only for the

reimbursement to the

contractor of actual

costs incurred.

This basis of payment is

rarely used entirely on

its own because it

provides no profit for

the contractor.

Canada does not pay for

any profit or any extra

fees. Only actual

allowable costs are paid

No incentive for

contractors to control

costs.

• Allowable costs;

• Limitation of

expenditure; and

• Validation of actual

costs.

 Used for research

and development

with non-profit

organizations.

119 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Cost Reimbursable

with Fixed Fee

This basis of payment

provides for payment

to the contractor for

acceptable costs

incurred by the

contractor and a fixed

fee.

• When

circumstances do

not permit the use

of a fixed price.

• When scope of

work is not clear or

cannot be

predicted.

• Flexible pricing and

allows for scope

adjustments and

variations without

profit recalculations.

• Provides control over

the amount of profit

(contractor does not

receive a windfall

gain as may be the

case for a fixed price

contract).

• Has visibility of costs.

• Enables Canada to

participate in cost

savings when actual

inputs (e.g., hours,

units) are lower than

expected.

• No incentive for

contractors to

control inputs (e.g.,

hours, units) or gain

efficiencies.

• Canada bears all

cost risks.

• Canada loses if the

work cannot be

completed within

the expected cost

of performance.

• There is budget

uncertainty for

client department.

• Increased contract

administration

burden to verify and

monitor costs.

• Acceptable costs;

• Fixed fee;

• Ceiling price or

limitation of

expenditures; and

• Validation of costs

claimed

Primarily used in

research, advanced

development or

exploratory development

when the level of effort

required is unknown.

120 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Cost Reimbursable

with Target Cost - No

Maximum Price

• A gain/pain

sharing contract

that provides for a

sharing formula

between Canada

and contractor of

cost savings

achieved or costs

exceeding the

target during

performance of

the contract

requirements.

• Allocates cost

savings and costs

exceeding pre-

established target

costs based on a

sharing formula.

• When it is difficult to

predict actual cost

components and

costs of the contract.

• When it is too difficult

to attract a contractor

without having over

inflated fixed price to

compensate industry

for risks.

• When it is possible

to establish an

objective

relationship

between incentive

fee and contract

costs.

• Canada bears risk for

cost exceeding the

target.

• Costs may exceed

initial budgets without

cost limit.

• Misaligned gain/pain

sharing ratio could

results in low

effectiveness of

incentive for cost

control.

• Performance

objectives other than

cost, related to quality

or schedule, may be

compromised or

overlooked if focus is

solely on cost.

• Can strengthen the

alignment between

Canada and the

contractor and

encourage them to

work together

because they share

both risk and reward.

• Incents the

contractor to be cost

efficient.

• Contractor’s risk

related to costs

exceeding the target

is lowered.

• Target cost;

• Target profit;

• Sharing formula;

• Adequate

accounting system;

and

• Validation plan.

Used for non-commercial

product or services (e.g.,

new products or builds,

research and

development programs).

121 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Cost Reimbursable

with Target Cost -

Maximum Price

• A gain/pain

sharing

arrangement

where the

contractor and

Canada share in a

reward (penalty)

that is calculated

based on the

measurement of

actual cost

performance

compared to pre-

established cost

performance

criteria, with a

maximum in place.

• When the costs to

be incurred in the

contract are

difficult to predict.

• When the

contract would

benefit from

incentives

designed to

provide greater

cost control.

• For a program or

product where

there is a clear

understanding of

client

requirements.

• When it is

possible to

establish an

objective

relationship

between incentive

fee and contract

costs.

• Significant risk is put

on the contractor for

final delivery, as once

the maximum price is

reached there is no

limit to a contractors

loss.

• Complex and difficult

to negotiate and

execute.

• Performance

objectives other than

cost, related to

quality or schedule,

may be compromised

or overlooked if focus

is solely on cost.

• Can strengthen the

alignment between

Canada and the

contractor and

encourage them to

work together

because they share

both risk and reward.

• Canada is able to

share in cost

efficiencies.

• Canada limits the

risk to costs

exceeding the target

under the maximum

price.

• Target cost;

• Target profit;

• Piece ceiling/

maximum price;

• Sharing formula;

• Adequate

accounting system;

and

• Validation plan.

• Used for a newer

program or product

(e.g., a prototype has

been developed and

production is

commencing).

• When there is no

significant

unresolved technical

process or design

issues that will result

in the redesign of

requirements.

122 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Cost Reimbursable

with Fee Based on

Actual Costs

The contractor gets

paid on the actual

costs spent in the

performance of the

work plus a fixed

percentage of those

actual costs as a profit.

• Not recommended.

• N/A

• There is no

incentive for

contractors to

control costs.

• Contractors are

motivated to

maximize costs.

• Fixed profit

percentage on total

allowable costs

• Not recommended.

• Should consider

using another basis

of payment.

Provisional Price

The contract begins

with a cost

reimbursable basis of

payment with the

objective of moving

towards a fixed price

basis of payment

within the contract

term.

• When a cost benefit

analysis reveals

that the value to

Canada to fix a

price to decrease

the downside risks

of a cost

reimbursable

contract, warrants

the increased

administration

burden that

accompanies it.

• Reduces risks to

Canada by converting

an administratively

heavy cost

reimbursable based

contract with little

cost control to a fixed

price contract.

• When the price is

fixed, it incents a

contractor to earn a

greater profit through

efficient cost control.

• Canada bears all

risks related to

costs through the

cost reimbursable

portion of the

contract.

• Canada takes on

the risk and burden

of establishing and

validating the price

prior to fixing it.

• Risk to Canada that

price is fixed based

on inefficient cost

practices from cost

reimbursable

portion of the

contract.

• Initial basis of

payment = cost

reimbursable with

price ceiling or

limitation of

expenditure;

• Milestone for fixing

price - % of work

complete;

• Cost submission

from contractor

validated;

• Price developed

from price

validation; and

• Price negotiations

and amendment to

formally move

contract to fixed

price.

• In contracts where

the costs surrounding

the requirement

cannot be reasonably

estimated initially but

it is expected to be

able to reliably

estimate the costs for

the requirement later

in the contract life.

• Typically, these

would be used in

longer-term contracts

(e.g., 5 or longer).

123 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Benefits

Risks

Elements

Typical Application

Price Subject to

Economic Price

Adjustment

(EPA)/Foreign

Currency Adjustment

(FCA)

Contract price is fixed

with provisions to

provide for revisions

to the fixed based

price upon the

occurrence of certain

contingencies.

• Market conditions

are significantly at

risk through an

extended period of

contract

performance and

are separately

identifiable.

• Risk stems from

industry-wide

contingency

beyond contractor’s

control.

• Addresses a

specified market risk

that may be beyond

the contractor’s ability

to control.

• Incents a contractor

to accept a fixed-

price contract without

inflating the price to

cover the risk.

• Protects both Canada

and contractor from

the effects of

economic changes.

• There is uncertainty

related to market

prices over the life

of the contract.

• Potentially allows

for annual

increases (or

decrease) in a

contract price

based on an index

that does not

correlate to cost-

efficiencies.

• A fixed price is

established.

• A formula to adjust

volatile components

of the contract

upwards or

downwards is

documented in the

contract.

• A trigger point is

defined in the

contract to

establish when an

EPA adjustment is

required.

• For example: 1)

Annual market

change and

2) Raw material

index increases or

decreases by >

3%).

• Must include a

ceiling price or a

limitation of

expenditure.

• Used in long-term

contracts for

commercial supplies

during a period of

high inflation.

• When the contract

has components

priced on market

conditions that are

significantly at risk

through an extended

period of contract

performance and can

be separately

identifiable.

124 | Page Public Services and Procurement Canada September 30, 2019

4.5.2 SUMMARY TABLE OF INCENTIVE TYPES

Types

Description

When to Use

Risks

Benefits

Elements

Typical Application

Technical

Performance

Incentives

• Sets and rewards

objective technical

performance goals to be

achieved in the

performance of the

contract that bring value to

Canada.

• When technical

performance

thresholds are

critical to Canada.

• When performance

excellence and

improvements would

add value to

procurement.

• When it is possible

to establish discrete,

objective and

measurable

incentive targets to

technical

performance.

• It is potentially

complicated to

practically apply.

• There is significant

administrative burden.

• Canada`s actions can

both positively or

negatively impact

contractor

performance.

• When established

without a

corresponding cost

control incentive or

process, it can

potentially result in

cost inefficiencies.

• It is a practical way

to motivate

excellence in

contractor

performance or to

meet technical

performance

criteria critical to

Canada.

• Technical

criteria,

specifications

and

Requirements;

• Incentive

formula; and

• Validation

methodology.

• Used in all forms of

pricing approaches,

ranging from fixed

price to cost

reimbursable.

125 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Risks

Benefits

Elements

Typical Application

Schedule

Performance

Incentives

• Contractor is provided with

opportunity to earn

additional profit upon

achievement of targeted

delivery dates of critical

value to Canada.

• When it is of

critical

importance to

Canada to

receive a

product or

service in a

timely manner.

• When it is

feasible to

determine

objective

incentive

targets

applicable to

delivery times.

• Canada’s actions can

both positively or

negatively impact

contractor

performance.

• When established

without a

corresponding cost

control incentive or

process, it can

potentially result in

cost inefficiencies.

• It is a practical way

to achieve required

timelines.

• It is a practical way

to ensure matters

of an urgent nature

are delivered on

time.

• Schedule

requirements;

• Target dates;

• Schedule

performance

incentives and

performance

requirements;

• Incentive

formula.

• Applied to all forms

of pricing

approaches ranging

from fixed price to

cost reimbursable.

126 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Risks

Benefits

Elements

Typical Application

Award Fees

• The award fee incentive is

a pool of funds that the

contractor can earn, in

addition to any profit or

base-fee, upon evaluation

performance against pre-

established criteria.

• Motivates contractors to

perform in areas critical to

a procurement success

that are subject to

judgement and qualitative

measurement and

evaluation.

• When evaluating a

performance that is

subjective in nature

and objective

performance targets

are not available/

possible.

• It can be challenging

to align award fee

earnings with contract

performance

outcomes.

• There is significant

administrative burden.

• Canada’s actions can

both positively or

negatively impact

contractor

performance.

• It is a flexible way

to motivate

excellence in

contractor

performance.

• Motivates a

contractor to

concentrate

resources in an

area critical to a

program’s success.

• Award fee plan;

• Award fee

amount;

• Evaluation

period;

• Evaluation team;

• Performance

categories;

• Evaluation

criteria and

ratings; and

• Evaluation

process.

• Consultations;

• Services;

• Research and

development;

• Construction system

development and

designs; and

• Support services.

127 | Page Public Services and Procurement Canada September 30, 2019

Types

Description

When to Use

Risks

Benefits

Elements

Typical Application

Non-Financial

Incentives

• Incents the contractor by

non-monetary rewards

that are not part of a

contractor’s pay.

• Use when it is an

efficient supplement

to direct financial

incentives.

• When financial

incentives are not

available.

• Will not directly

motivate the

contractor.

• Care needs to be

exercised in their

administration to

avoid creating the

impression of

favouritism.

• Award terms may

inhibit competition.

• It is a low cost

approach to incent

performance.

• It contributes

substantially to

future contractor

profitability.

• It builds an

effective long-term

relationship

between Canada

and the contractor.

• Reputation

enhancing

measures;

• Contract award

terms; and

• Contractor

employee

motivation.

• Testimonials;

• Contractor

performance

recognition

programs; and

• Intrinsic motivation

for contractor

employees.

128 | Page Public Services and Procurement Canada September 30, 2019

5.0 PRICING PRINCIPLES

Cost-Based Pricing

In Canada, cost-based pricing is most commonly used when a contract requires any type of price negotiation

(e.g., pricing a non-competitive contract, price negotiations in a competitive contract subsequent to the award

for specific pricing aspects, contract modifications, amendments and the addition of incentives involving

costs, contract extensions). Pricing Principles and related processes outlined in Section 5 are in in place to

provide guidance on the process of establishing a price through cost-based pricing.

The establishment of a cost-base is applicable to the following Pricing Approaches:

• Fixed-Price contracts: A cost-base is needed to establish the foundation of acceptable costs upon which

a profit or fee is developed for the determination of a fixed price.

• Fixed Unit Rate contracts: A cost-base is used to determine acceptable costs to be included in a fixed

unit rate contract.

• Cost Reimbursable contracts: The cost-base is used to determine acceptable costs to be included in a

cost reimbursable contract.

• Provisional Price contracts: The cost-base is first used in a provisional contract to determine the

acceptable costs to be included in the contract claims. From there, the cost-base is used to develop the

base upon which a profit is developed to determine the fixed price.

• Incentives: In combination with the basis of payment options mentioned above, a cost-base is also

applicable to incentives through the determination of any incentives or targets involving costs and the

determination of the acceptability of costs.

Once a Pricing Approach (Section 4) is determined, the price development and negotiation process can be

applied. This means that:

• Firstly, it is important to establish an acceptable Cost Base (Section 5.1) for the contract as a whole or in

the form of costing rates; and

• Secondly, depending on the Pricing Approach selected (Section 4) it is necessary to develop a fee, profit

level or incentive. (Section 5.2 (Development of an Appropriate Profit)).

Alternative Pricing Strategies

The Guide outlines the principles for establishing an acceptable cost-base (Section 5.1) as well as the

process for developing an appropriate level of profit (Section 5.2). Guidance with respect to the development

129 | Page Public Services and Procurement Canada September 30, 2019

of profit is currently under review. In light of the fact that alternative pricing measures (Section 5.3), will be

applied to contracts in some instances, it is requested that contracting officers that are pursuing an Alternative

Pricing Strategy share their contracts and associated experiences with the Procurement Support Services

Sector. This will ensure from lessons from alternative approaches can be incorporated in future guidance for

the benefit of the entire procurement community.

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What are the Pricing Principles?

The Pricing Principles in Canada are comprised of a combination of SACC Manual Clauses, Supply Manual

guidance, pricing tools and this Guide. Together, the following comprise the Pricing Principles to be applied

in negotiated contract pricing in Canada.

5.1 Establishment of a Cost Base

• SACC Manual Clause 1031-2

• Costing Standards

• Cost Accounting Practices Submission (CAPS)

5.2 Development of Profit (*Currently Under Review)

• Supply Manual Chapter 10.65 – Calculation of Profit on Negotiated Contracts

• Supply Manual Chapter 10.70 – Recovery and Settlement of Contract Claims

5.3 Alternative Pricing Approaches

• Supply Manual Chapter 10.75 – Interim Pricing Measure

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5.1 ESTABLISHING THE COST BASE

As detailed in the introduction to Pricing Principles (Section 5), the establishment of a cost base is applicable

to all situations involving price negotiation.

In cost-based pricing, the price of the contract is based on the acceptability of costs incurred, cost estimates,

or a combination thereof with a profit margin calculated in accordance with Section 5.2 (Development of An

Appropriate Profit). Establishing the cost-base is the first step in building the price and is essential for reaching

agreement on the price and for assessing a price when it is negotiated subject to adjustment based on cost

performance.

To avoid dispute related to costs acceptable for contract pricing or administration, Canada provides direction

on costs suitable for consideration in Government of Canada contracts, specifically

• Costing Standard; and

• Standard Acquisition Conditions and Clauses (SACC) 1031-2.

Annex 2 introduces PSPC’s Costing Standard in support of SACC 1031-2. This Standard:

• explains in detail Canada’s expectations on costing related to Canada’s contracts;

• emphasizes the core costing principles of attribution, appropriateness and reasonableness; and

• includes examples and suitable measures to assist contracting officers in determining the acceptability

of a cost and the amount claimed.

For greater certainty on acceptability of a contractor’s costing, PSPC has introduced the Cost Accounting

Practices Submission (CAPS), which is an attestation by the contractor of compliance with SACC 1031-2

and highlights specific areas of costing where different interpretations may exist. It provides the contractor

and Canada with the means to agree on the acceptability of costing and avoid disputes and as a basis upon

which resolve differences related to acceptable costs.

The process outlined below includes the Costing Standard, which is used to aid in the acceptability decisions

related to costing and the Cost Accounting Practices Submission (CAPS), which is designed to help assess

and formally accept the contractor’s cost accounting practices early on in a contract.

These processes are intended to better facilitate the application of professional judgement by a contracting

officer when determining the acceptability of costs. The processes are designed to be transparent and to

ensure clarity in terms of the acceptability of costs in a contract for all parties.

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5.1.1

• Costing Standard

5.1.2

• Cost Accounting Practices Submission (CAPS)

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5.1.1 COSTING STANDARD

An acceptable cost is determined in accordance with Standard Acquisition Clauses and Conditions (SACC)

1031-2 - Contract Cost Principles. The Costing Standard is supplementary guidance to SACC 1031-2.

See Annex 2 for more information.

• The Costing Standard is intended to augment Canada’s Costing Principles SACC 1031-2 to:

• facilitate consistency in costing;

• improve understanding and clarity on the acceptability of costs;

• aid in the achievement Canada’s objective of fair and reasonable pricing;

• apply principles-based and risk guided approaches to pricing; and

• support contracting officers in the execution of their professional judgement in terms of effective

pricing.

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5.1.2 COST ACCOUNTING PRACTICE SUBMISSION (CAPS)

Canada’s direction on costing for government contracts is principle-based. This is similar to the approach

adopted by other jurisdictions, most notably Great Britain and Commonwealth of Australia. Principle-based

costing allows a contractor’s accounting professionals with the ability to classify and assign costs to Canada’s

contracts based on their professional judgement. Because “principle-based” direction can be open to

interpretation and to avoid disputes related to contract costs, PSPC has introduced the Costing Accounting

Practices Submission (CAPS).

The CAPS serves to reinforce the contractor’s obligation to comply with SACC 1031-2 and, when in doubt,

to seek Canada’s direction on interpretation and application. It documents:

• the justification by contractors in terms of its interpretation of suitable costs; and

• Canada’s formal acceptance, when greater certainty is required.

The CAPS does not address the reasonableness of the amount of costs but rather the nature of the cost or

costing practices.

Purpose

The purpose of the Cost Accounting Principles Submission (CAPS) document is:

• to develop a common understanding between the contracting officer, the contractor and the client

department on the cost accounting practices being applied by fully disclosing the acceptance of the

practices during the pre-contract award period.

• to improve transparency into the costing applied in a cost-based contract.

• to ensure that a contractor will be able to recover all attributable, appropriate and reasonable costs.

Please Note

Cost Accounting Practices Submission (CAPS)

• A formal disclosure of a contractor’s cost accounting practices including the identification of

direct and indirect costs and disclosure of methodologies used to allocate indirect costs.

• A CAPS document can serve as a useful tool in helping to explain and support contractor costs.

from the outset.

• See Policy Notification 133 for additional details on the CAPS.

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When to Use

The CAPS is intended to be used when the price or rate of a potential contract (or amendment) will be based

on estimated or actual costs (e.g., fixed time rate, cost reimbursable, cost reimbursable plus fixed fee, etc.),

which may apply in the following situations:

• Sole-source cost-based contracts where pricing is based on costs and the costing methodologies in

accordance with SACC 1031-2.

• Competitive or non-competitive contracting situations such as pricing of amendments where costing is

needed to determine the price for Additional Work Requirements (AWRs), change orders, extensions,

options, and spares.

• Contract management for profit determination that is required to support bonuses and other financial

incentives or cost-based indicators for performance-based contracts.

Process Steps

See Annex 4 for more information on process steps.

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5.2 DEVELOPMENT OF AN APPROPRIATE PROFIT

The current guidance for the development of an appropriate profit can be found in Chapter 10 of the Supply

Manual under the following sections:

• Supply Manual Chapter 10.65 – Calculation of Profit on Negotiated Contracts

• Supply Manual Chapter 10.70 – Recovery and Settlement of Contract Claims

Please Note: Guidance with respect to the development of profit is currently under review.

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5.3 ALTERNATIVE PRICING STRATEGIES

• Supply Manual Chapter 10.75 – Interim Pricing Measure

There are some situations where alternatives to cost-based pricing might generate better value to Canada.

Alternatives to cost-based pricing are ways to buy goods and services where the price does not rely on the

cost to the contractor of fulfilling the statement of requirements. Two alternatives to cost-based pricing are

explored further in Annex 5 (Discussion Paper Alternative Methods to Cost-Based Pricing – To be released

soon) in this paper: outcome-based pricing and value-based pricing.

In outcome-based pricing the price is set based on the achievement of a pre-agreed outcome for the client

department. At the time the contract is established the price may be expressed as a formula, for example a

percent of operational cost savings achieved or as a rate per unit of improved performance. The contractor’s

payment is (largely) at risk and the amount to be paid is not known until the work is complete and the client

department takes delivery of the produces and/or services.

In value-based pricing the price is set based on the anticipated value of the goods and/or services that are

being acquired.

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6.0 ANNEXES

ANNEX 1: Firm Price Basis of Payment

ANNEX 2: Costing Standard

ANNEX 3: Contact Information

ANNEX 4: Process Steps for Cost Accounting Practices Submission (CAPS)

ANNEX 5: Discussion Papers

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ANNEX 1: FIRM PRICE BASIS OF PAYMENT

Firm Price Basis of Payment in a Non-Competitive Contract

A firm price basis of payment provides for the establishment a price at the beginning of a contract based on

estimated costs and a negotiated profit, which for the most part, is not subject to adjustment unless through

the course of the contract, PSPC exercises its right to apply the discretionary audit clause. The discretionary

audit clause, validates the actual costs incurred and profit earned in the contract and compares them to those

originally estimated in the establishment of the firm price. Resulting decreases in actual costs and related

excess profits realized by the contractor are then recovered by Canada.

Fixed Price in a Non-Competitive Contract

A fixed price basis of payment establishes a price in the same manner as a firm price contract, through the

development of a cost base and negotiation of a profit rate; however, a fixed price is not subject to any

adjustment. The contractor is paid a definite sum of money for carrying out the work regardless of the costs

actually incurred. A validated strategy is carried out before a contract is signed to ensure the reasonableness

and fairness of the price and, once the contract is signed, changes cannot not be made to the price.

Similarities

• Firm and fixed price contracts are used under similar circumstances, as detailed in the Fixed Price

Section 4.1.1, when the contract scope and requirements are known and unlikely to change, resulting

in a realistic estimate of applicable costs, and the negotiation of a fair and reasonable profit.

• Firm and fixed prices in a non-competitive environment are built by estimating a cost-base and

negotiating a fair and reasonable profit, using Chapter 10.65 of the supply manual.

• Both firm price and fixed contracts:

• place risk upon the contractor as they bear full responsibility for all costs and resulting losses;

• result in a high profit rate built into the prices as the risk is passed onto the contractor;

• provide incentive for the contractor to control costs and perform efficiently; and

• impose little administrative burden upon both contracting parties

Please Note

• Firm Price basis of payment will be replaced by fixed price basis of payment upon release of

Phase II.

• Refer to Section 4.1.1 (Fixed Price) for the application of this option.

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Differences

• It should be noted that the discretionary audit clause is not always applied in a firm price contract. As a

result, many firm price contracts result in similar application to that of a fixed contract. It is only in the

application of the audit clause that differences arise.

• A firm price may be subject to a discretionary audit and a resulting price adjustment in the event the

audit reveals excess profit (profit greater than that negotiated at the onset of the contract), where as a

fixed price remains the same throughout the contract regardless of fluctuations in costs and the

contractor bears all risks associated with those fluctuations.

• A discretionary audit clause may be included in a firm price contract, while there will be no discretionary

clause for the purposes of excess profit recoveries in a fixed price contract.

• A firm price essentially sets a maximum price limit that Canada will pay. In the event the contractor’s

actual costs incurred were much higher than estimated in the establishment of the contract price, there

is no resulting price increase. The contractor bears full risk related to cost increases and, as a result,

they are awarded a higher profit premium. In a fixed price contract, the contractor also bears full risk

related to cost increases, but is able to retain all additional profits earned when costs are under the

original estimates.

Why Change Firm Price to Fixed Price?

There are challenges with the current application of the firm price basis of payment and the discretionary

audit clause.

• Firm price removes all incentive for the contractor to improve their processes and to gain efficiencies

because Canada has the right to audit and recover the resulting overpayment.

• The discretionary audit clause is not applied consistently and when it is applied, the audit and resulting

recovery appears punitive in nature.

• Firm price does not help build or maintain contractor relationships due to disputes over excess profit

recoveries and audit findings as well as the inconsistent application of the clause.

• Contractors are awarded a premium for Firm Price at the beginning of a contract, and then, throughout

the contract the scope and requirements are modified and the nature of the contract resembles that of

a cost reimbursable contract with Canada bearing the risks related to cost uncertainties and the

contractor earning a higher than necessary profit premium.

What Will Be Changed?

Under a fixed price basis of payment the:

• fixed price is set as a final price that is not subject to any adjustment throughout the lifecycle of the

contract if no amendment of the contract is needed.

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• fixed price must be validated prior to contract initiation through available market-based data, a validated

cost base with a Supply Manual Chapter 10.65 profit calculation or should-cost analysis benchmarking.

• discretionary audit clauses will be replaced by a general audit clause.

• audits will not be conducted for the purpose of excess profit recoveries.

• all decisions supporting validation, justification and authorization of the price must be documented in the

procurement plan or file.

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ANNEX 2: COSTING STANDARD

The activities, steps, and outputs involved in using the Costing Standard to assess the acceptability of

contract costs are depicted in the below diagram.

Figure 9: How to Use the Costing Standard

All key decisions should be documented with reasoning and consideration should be made to include

important elements in the contract terms and conditions

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Criteria for Assessing the Acceptability of a Contract Cost

To be acceptable, a contract cost must meet the criteria of:

• Attributable

• Appropriate; and

• Reasonable.

Attributable: A cost is attributable if it is incurred directly or indirectly for the fulfilment of the contract and it is

necessary to fulfil the requirements of that contract.

Appropriate: A cost is appropriate if it, by its character and nature, represents a cost that is expected to be

incurred in the conduct of delivering the contract.

Reasonable: A cost is reasonable if by its nature it does not exceed what might be expected to be incurred

in the normal delivery of the contract in question, whether under a competitive or non-competitive

procurement.

The criteria of Attributable and Appropriate should be used to determine if a cost should be accepted for a

contract, while the criterion of Reasonable should be used to determine what amount of an Attributable and

Appropriate cost should be accepted for a contract. If these criteria are met, it implies that accepting the cost

is of value to Canada. The following decision tree diagram illustrates this further.

Figure 10: Contract Cost Acceptability Assessment Decision Tree

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In order to assess the criteria, professional judgement should be applied along with consultation from the

integrated procurement team (e.g. contracting officers, price advisors, auditors, client department members,

management, and others). Ultimately, the application of professional judgement should be guided by the

purpose and desired outcomes of the contract and the risk of the contract and respective costs.

Sub-Criteria: Attributable, Appropriate and Reasonable

The following tables provide sub-criteria, and corresponding example considerations, on how to assess

whether a cost is Attributable, Appropriate, and Reasonable. For a cost to be assessed as Attributable,

Appropriate, and Reasonable, “yes” must be answered for all respective sub-criteria. However, it should be

noted that the list of considerations to assess the respective sub-criterion are illustrative and accordingly may

not be applicable in each situation.

Is the Cost Attributable?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

Is the cost not already

compensated in any way from

the contract or another

contract, whether past, existing

or proposed?

• Is the cost not already compensated through other means within the

contract (e.g., government grants)?

• Is the cost not already compensated through another contract?

• Is the cost (e.g. financing costs) not already compensated through

profit rate calculations (e.g., return on capital)?

Is there a sufficient level of

certainty for the occurrence of

the cost type?

• Have direct costs been tracked separately from indirect costs?

• Have the costs been recorded in the accounting system?

• Is there sufficient evidence that the cost has occurred or will occur?

• Is supporting information for the cost disclosed?

• If required, can the above information be verified by Canada?

Does the cost have a causal

relationship with or is otherwise

required/beneficial for the

performance of the contract?

• With respect to assessing the causal relationship of the cost,

consider the following:

• Does it contribute to the achievement of contract specific

activities or outcomes?; and

• Could it have been avoided if not for the contract?

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Is the Cost Attributable?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

• In respect to assessing whether a cost is otherwise

required/beneficial, consider the following:

• Does it contribute to financial, schedule, and quality benefits for

the contract:?; and/or

• Is it necessary and expected to be incurred for the performance

of the contract even though a causal relationship to the contract

cannot be shown (e.g., certain types of indirect general and

administrative costs)?

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Is the Cost Appropriate?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

Is the inclusion of the cost

congruent with applicable

government policies and

regulations?

• Is the inclusion of the cost congruent with policies and regulations

such as the Treasury Board Secretariat Directive on Travel, Income

Tax Act, provincial Employment Standards, PSPC code of conduct,

PSPC values and ethics, etc.?

Is the inclusion of the cost

consistent with comparator

information?

• Have the following sources of comparator information been

considered for the cost:

• internally available data for other contracts;

• accessible data for contracts from other government

procurement organizations (e.g., municipal,

provincial/territorial, and/or international);

• accessible documentation, including historical and forward-

looking financial reports, for the contractor;

• publically available financial reports from other companies in

the contractor’s industry;

• publically available financial reports from other companies in

the contractor’s geography; and/or

• other applicable sources of comparator information?

Does inclusion of the cost

provide the supplier with a

perceived unfair advantage

over others in the industry?

• Does the inclusion of the cost improve the competitive position (e.g.

by enabling reduced overhead costs) of the respective contractor

within its industry, and if so:

• Is the inclusion of the cost in the contract due to the contract’s

integration with other government mechanisms or programs

(e.g. Innovation, Science and Economic Development

Canada’s Industrial Technology Benefits Policy); and

• Would the reimbursement of the cost be viewed as a fair

subsidy to the contractor or the contractor’s region or industry?

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Is the Cost Reasonable?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

Is there a sufficient level of

evidence around the

measurement for the cost

amount?

• For actual costs:

• Has the cost amount been identified and recorded in the

contractor’s accounting system?; and

• Can the contractor provide evidence to support costs such as

documentation and supporting calculations for the cost

amount?

• For cost estimates:

• Can the contractor provide empirical evidence for the amount

estimated for the cost (e.g., source of data, financial forecasts,

supporting calculations); and/or

• Has the contractor applied a rigorous cost estimating

methodology? (e.g., use of quality data, use of analogies,

parametric equations, build-ups, extrapolation from actuals)

• If required, can all of the above information be verified by

Canada?

Is the treatment of the cost

amount consistent with good

business practices and

congruent with contract

performance?

• Where applicable:

• Has the contractor used an acceptable measurement basis to

determine the cost amount?

• Has sound transfer pricing methodology been used to

determine transfer prices?

• Is the amount for the cost type congruent with applicable

policies and regulations (e.g., Treasury Board Secretariat

Directive on Travel, Income Tax Act, provincial Employment

Standards)

• Have the following sources of comparator information been

considered for the cost amount:

• internally available data for the contract in question (prior-

period and forecasted amounts);

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Is the Cost Reasonable?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

• internally available data for other contracts;

• accessible data for contracts from other government

procurement organizations (e.g., municipal,

provincial/territorial, and/or international);

• accessible financial reports, historical and forward looking, for

the contractor;

• publically available financial reports from other companies in

the contractor’s industry;

• publically available financial reports from other companies in

the contractor’s geography;

• leading practices for managing the amount of the cost type;

and/or

• other applicable sources of comparator information?

• Have applicable credits (e.g., grants, subsidies, discounts,

allowances, rebates) been removed from the cost amount?

• Where measurable, does the amount of the cost provide value for

Canada and, where measurable, does the cost justify the benefits?

(e.g., research and development costs resulting in reduced

production costs)

Is there evidence that the cost

amount, to be allocated to

Canada, has not already been

recovered?

• Has the cost amount to be allocated to Canada been recovered:

• in past, existing, or proposed contracts?

• in profit rate or premium calculations?

• Has a direct (indirect) cost already been recovered as an indirect

(direct) cost?

Does the cost amount comply

with the terms and conditions

• For established limits in the contract terms and conditions, does the

cost amount comply?

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Is the Cost Reasonable?

Sub-Criteria

Example Considerations to

Assess Sub-criteria

established in the contract, if

applicable?

• Does the cost amount comply overall with any terms and conditions

(i.e. limits) set out in other contracts with the same contractor?

• For example, there may be a limit set in the contract terms for

the percentage of contractor indirect sales and marketing costs

that can be allocated to government contracts in relation to the

total cost of the government contracts (e.g., contractor indirect

sales and marketing costs can comprise up to X% of the total

cost of the contractor’s government contracts).

Has the cost amount been

allocated to the contract in

proportion to the benefits

received or expected to be

received by the contract?

• Has the cost amount been allocated fairly and accurately (i.e. direct

versus indirect cost) between the contract in question and other

existing government contracts and non-government business

activities in which the contractor may be engaged?

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Assessment of Contract Cost Acceptability Using a Risk Guided Approach

To assist in assessing the acceptability of contract costs, a risk-guided approach should be applied. Applying

a risk-guided approach means that it is necessary to assess the:

• likelihood of incorrectly assessing the acceptability of a contract cost; and

• impact of the incorrect assessment of acceptability for a contract cost on the value to Canada

This approach is recommended because:

• contracts may vary based on the nature of the procured goods and services, the uncertainty of scope,

the level of strategic/reputational importance, the length of the contract, and the size of dollar value.

• costs may vary based on the nature of the cost, the uncertainty of occurrence of the cost, the level of

strategic/reputational importance, and the size of cost amount.

Correspondingly, the risk of incorrectly assessing the acceptability of a contract cost will vary depending on

the specific contract and specific cost in question.

The table below identifies potential indicators for assessing likelihood and impact. Note that the list of

indicators are non-exhaustive and may differ depending on the type of cost-based payment.

Likelihood of Risk Occurring

Impact on the Value to Canada

• The nature of the procured goods and services

(e.g., routine versus new technology).

• The uncertainty of the scope of the contract (e.g.,

for cost-estimate types of basis of payment).

• The nature of the cost, including, but not limited

to, whether the:

• cost is classified as an indirect cost;

• cost is a derivative of transfer prices;

• cost amount has been measured using an

alternative measurement basis (e.g., fair

market value instead of opportunity cost);

and/or

• amount for the cost is an aggregate of

amounts for other cost (e.g., sales and

• The reputational/strategic importance of the

contract

• The amount of the cost including the

proportion of the cost amount to the total

contract cost

• The reputational/strategic importance of cost,

including, but not limited to, whether:

• a high level of public scrutiny will occur

due to incorrect acceptance; and/or

• unfair subsidies will result from incorrect

acceptance.

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marketing costs may be comprised of

compensation costs, travel costs, and others).

• Sufficiency of evidence required to support

acceptability for the cost, including, but not

limited to, whether certain evidence is:

• available (e.g. benchmark data); and/or

• measurable (e.g. benefits of cost type to

Canada).

The likelihood of the risk occurring, the impact on the value to Canada, and the overall risk level (which is an

aggregate of likelihood and impact) should be assessed using an appropriate mechanism (e.g. a rating scale).

The benefit of a risk-guided approach is that it will help Canada manage capacity, so that increased and

suitable effort (e.g. stakeholder consultations, due diligence, etc.) is allocated, to assess the higher risk

contract costs. Ultimately, a risk-guided approach will hasten the process of assessing contract cost

acceptability leading to more agile procurements.

Assessing Contract Cost Acceptability During the Contract Lifecycle

The criteria of Attributable, Appropriate, and Reasonable can be used to assess the acceptability of contract

costs before contract initiation, during the contract period and after contract completion. These criteria can

be used as the basis to negotiate what costs would be appropriate for a contract, to provide limits for

determining a reasonable amount for a cost case and to assess if the reported contract costs are Attributable,

Appropriate and Reasonable.

Supplementary Considerations for Assessing the Acceptability of Specific Costs

The categorization of the specific costs by cost groups is presented in the table below.

1) Asset-based Costs

2) Employee-based

Compensation

Costs

3) Good/Service-

based Costs

4) Corporate/Various-

based Costs

1.1 Amortization of

Unrealized

Appreciation of

Assets

1.2 Depreciation

1.3 Excess

Production

Capacity

2.1 Dues and

Membership

2.2 Downtime

2.3 Employee Benefits

2.4 Executive and

Employee

Compensation

3.1 Bad Debts and

Collection

Charges

3.2 Inventory Losses

and Obsolescence

3.3 Rework and

Faulty

Workmanship

4.1 Allowance for

Interest on Debt and

Capital

4.2 Donations

4.3 Extraordinary or

Unusual Matters or

Events

152 | Page Public Services and Procurement Canada September 30, 2019

1) Asset-based Costs

2) Employee-based

Compensation

Costs

3) Good/Service-

based Costs

4) Corporate/Various-

based Costs

1.4 Excess Facilities

1.5 Impairment of

Assets

1.6 Leases

2.5 Overtime Costs

2.6 Pension Costs

2.7 Severance

Payments

2.8 Training and Staff

Development

2.9 Travel Costs and

Living Expenses

4.4 Financial Related

Expenses

4.5 Fines and Penalties

4.6 Fees for

Professional Advice

4.7 Goodwill

4.8 Insurance

4.9 Legal, Accounting

and Consulting Fees

in Connection with

Financial Re-

Organization,

Security Issues,

Capital Stock

Issues, Obtaining of

Patents and

Licenses and

Prosecution against

the Crown

4.10 Losses on

Investment

4.11 Losses on Other

Contracts

4.12 Patents and

Licenses

4.13 Prosecution of

Claims against the

Crown

4.14 Provisions for

Contingencies and

Warranty Costs

4.15 Refunds

153 | Page Public Services and Procurement Canada September 30, 2019

1) Asset-based Costs

2) Employee-based

Compensation

Costs

3) Good/Service-

based Costs

4) Corporate/Various-

based Costs

4.16 Research and

Development

4.17 Sales and Marketing

Costs

4.18 Taxes

Information for specific costs are presented in table format in the below structure.

• Description: This field identifies a description and/or examples of the respective cost.

• Supplementary Considerations: This field identifies supplementary considerations, for assessing the

acceptability of the specific cost in respect to the criteria of Attributable, Appropriate, and Reasonable,

that augments the guidance already provided in the Recommended Criteria for Assessing the

Acceptability of a Contract Cost section. This field also identifies discussion papers or cost tables with

related guidance which the practitioner can consult for further reference. This field is not meant to include

a complete list of all supplementary considerations, professional judgement is required.

Please Note: When assessing the acceptability of a specific cost, it is important to consider that the respective

cost may be an aggregate of other costs (e.g. sales and marketing costs may be comprised of compensation

costs, travel costs, and others). Correspondingly multiple tables may need to be consulted to identify

supplementary considerations and examples for the cost being assessed.

1) Asset-Based Costs

1.1 Amortization of Unrealized Appreciation of Assets

Description: Amortization is the process of allocating the cost of an asset over a period of time.

Unrealized appreciation is an increase in the value of an asset that the owner does not receive because

the asset has not been sold.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with the amortization of unrealized appreciation of assets are

considered non-applicable costs to the contract.

Amortization of unrealized appreciation of assets is currently under consideration.

Attributable

• No supplementary considerations noted.

Appropriate

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• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

1.2 Depreciation

Description: Depreciation is the gradual exhaustion of the service capacity of fixed assets which is not

restored by maintenance practices. It is the consequence of such factors as use, obsolescence,

inadequacy, and decay.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with the depreciation of assets paid for by Canada are considered

non-applicable costs to the contract. See Annex 5.2.3 (Discussion Paper – Production Capacity and

Indirect Costs Allocation).

Please note: This topic is under consideration. Further discussion and analysis on fair use of alternative

asset cost measurement bases will be provided.

Attributable

• No supplementary considerations noted.

Appropriate

• No supplementary considerations noted.

Reasonable

• The historical cost of an asset less related borrowing costs included in the cost of the asset should be

used to calculate depreciation costs.

• A contractor should apply its own accounting policies when valuing and recognizing assets on its

balance sheet.

• Assets are generally depreciated over their useful life. In circumstances where an asset is acquired

for a specific contract only and has no useful purpose thereafter then, if agreed to in advance, the

asset may be fully depreciated over the life of the contract as an acceptable depreciation cost.

• There should be no recovery of depreciation costs where these costs have been recovered through

other means.

• Example: When a contractor receives a grant from Canada to buy a depreciable asset, the amount

of the grant should be subtracted from the asset’s historical cost.

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1.3 Excess Production Capacity

Description: Excess production capacity is the difference between the contractor’s supply of capacity and

demand for capacity. It is also known as ‘idle capacity or ‘capacity not used’.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Please Note: This topic is under consideration. Further discussion and analysis will be provided.

1.4 Excess Facilities

Description: Excess/idle facilities refers to all fixed assets in a contractor's books of account which are not

in use or for which no use is anticipated within a reasonable period. "Facilities" in this context means plant,

related land, equipment, or any other tangible capital asset, wherever located, and whether owned or

leased by the contractor.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, expenses and depreciation of excess facilities are considered non-applicable costs

to the contract.

Attributable

• Expenses associated with the maintenance and/or the amounts of depreciation attributable to Excess

Facilities are generally not attributable costs to government contracts.

• Expenses and/or depreciation of excess/idle facilities, as defined above, may be attributable when

they are required to achieve contract specific activities and outcomes.

• For example: Canada requires access to contractor facilities and production capacity to be in a

state of readiness to respond to events such as health crises, war demands, and others. The costs

of idle facilities and excess capacity may be Attributable in this case.

• For example: Excess capacity may arise when Canada asks a contractor to build up its capacity

to support a large contracted project. The costs of idle facilities and excess capacity may be

Attributable in this case.

• Idle facilities and excess production capacity costs should be verifiable. The contractor should be able

to provide supporting documentation and calculations if such information is requested.

Appropriate

Costs associated with facilities that are excess to the contractor’s current needs should be examined and

the following factors should be considered when doing this assessment:

a) Vacant, or largely vacant space;

b) Inactive or unused equipment;

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c) Idle capacity required for stand-by purposes;

d) Indirect supporting staff no longer required either in full or part;

e) Other costs such as maintenance, repair, rent, property taxes, insurance, depreciation, etc.;

f) Management costs that should be reduced because of the reduction in active facilities.

Reasonable

• No supplementary considerations noted.

1.5 Impairment of Assets

Description: An asset impairment occurs when there is a sudden decrease in the market value of an asset

below its recorded cost (i.e. cost recorded on the contractor’s statement of financial position).

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Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• The contractor should be able to provide evidence that asset impairment has occurred.

• Impairment of an asset caused by the production/service requirements of the contract may be

Attributable.

• Example: The contractor is required to use its equipment above practical capacity for an extended

production period. As a result, the equipment experiences significant wear and tear and becomes

impaired. This impairment loss would presumably be Attributable.

• Impairment of an asset may be Attributable if the asset in question is acquired for a specific contract

and has no useful purpose thereafter.

• Example: The contractor is required to acquire a specific asset for a contract. Other than for the

contract in question, it is determined that the asset has limited commercial value. Due to contract

scope changes, the asset is no longer required. The contractor chooses to dispose of the asset,

due to its limited commercial value, and recognizes a corresponding impairment loss. This

impairment loss would presumably be Attributable.

• Impairment of an asset caused by contractor negligence would not be Attributable

Appropriate

• No supplementary considerations noted.

Reasonable

• The contractor should provide evidence, such as documentation and supporting calculations, for the

impairment cost amount of the asset.

• Impairment costs, for assets, which are covered by insurance, should not be allocated to a contract.

1.6 Leases

Description: A lease may be categorized as an operating lease or a capital lease.

Operating Lease: the lessor does not transfer substantially all the benefits and risks associated with

ownership of the leased property. Lease payments are treated as an expense (i.e. monthly rent).

Capital Lease: transfers substantially all the benefits and risks associated with ownership of the leased

property from the lessor to the lessee. Typically, a lessee would record the underlying asset (property) as

though it owns/purchased the asset.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

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• The contractor should be able to provide evidence of whether capital or operating lease costs have

occurred.

Appropriate

• No supplementary considerations noted.

Reasonable

• To be considered reasonable any lease cost should be determined in accordance with the following.

• The type of lease must be correctly identified as either an operating lease or a capital lease based

on acceptable Canadian accounting standards; Canadian Generally Accepted Accounting

Principles (i.e. ASPE or IFRS). In the case of an operating lease, the actual rental cost paid is

considered to be a reasonable cost. In the case of a capital lease, the depreciation amount

calculated on the capitalized value of the asset in the lease over the lease term or economic life

of the asset, is considered to be a reasonable cost.

• For a capital lease, depreciation of the asset should be in line with ASPE or IFRS. The asset is

generally depreciated over the lesser of:

• the lease term

• the asset’s useful life

• For capital lease costs, consult the 1.2 Depreciation cost table. The same supplementary

considerations are generally applicable for capital lease costs. For operating lease costs, a

Reasonable amount could be informed by rental costs of comparable property, as well as property

market economic considerations, in the same geographic region.

2) Employee-Based Compensation Costs

2.1 Dues and Membership

Description: Dues and memberships are regular fees often paid to an organization at regular intervals.

Professional designation annual membership dues would be one example.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with dues and memberships other than regular trade and

professional associations are considered non-applicable costs to the contract.

Attributable

• Dues and membership, which are part of an employee’s standard remuneration package may be

considered Attributable as they reflect the necessary administrative costs of an employee performing

work on a contract.

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• Other dues and membership may be Attributable if they have a causal relationship with the

performance of the contract.

• Example: Corporate membership fees of industry or trade associations may be Attributable in the

event the skill set is specifically required for the contract or membership fee is required to access

information required for the contract.

• The expenses associated with membership, either of the company as a whole or individual officers or

employees in associations whose prime purpose is to provide entertainment or recreation, are not an

acceptable cost to government contracts.

Appropriate

• No supplementary considerations noted.

Reasonable

• The cost amount for Attributable and Appropriate dues and memberships may be considered

Reasonable if the cost amount is comparable to industry benchmarks.

2.2 Downtime

Description: Downtime is a form of excess capacity, except it applies to labour, instead of physical

assets.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Generally not acceptable, unless downtime

• Is required to meet uncertain scope and demand,

• Are of a strategic nature that Canada has determined may be called upon to enable or support

urgent requirements,

• Or caused by changes in government policy which could not have been predicted by the

contractor.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

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2.3 Employee Benefits

Description: Employee benefits are various types of non-wage compensation provided to employees.

Examples include employee insurance, retirement benefits, tuition reimbursement, sick leave, vacation,

and others.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Employee benefits which are part of an employee’s standard remuneration package may be

considered Attributable as they reflect the necessary administrative costs of an employee performing

work on a contract.

Appropriate

• Attributable employee benefits may be considered Appropriate if the inclusion/occurrence of the cost

type is consistent with industry benchmarks.

Reasonable

• The cost amount for Attributable and Appropriate employee benefits may be considered Reasonable

if the cost amount is comparable to industry norms.

2.4 Executive and Employee Compensation

Description: Executive and employee compensation section includes the following:

Executive Compensation: Includes the monetary and non-monetary benefits given to the senior

management of a company

Profit Sharing & Bonus Payments: Include payments made to reward employee and executive

performance. These payments may be based on the performance of the individual and/or of the company

(e.g. amount of profit earned, share price etc.).

Dividends: A distribution of a company’s earnings to the shareholders.

Stock Options and Stock Based Compensation: Compensation to employees based on the shares of a

company.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, the following are considered non-applicable costs to the contract:

l. Unreasonable compensation for officers and employees

s. compensation in the form of dividend payments or calculated based on dividend payments

t. compensation calculated, or valued, based on changes in the price of corporate securities, such as stock

options, stock appreciation rights, phantom stock plans or junior stock conversions; or, any compensation

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in the form of a payment made to an employee in lieu of an employee receiving or exercising a right, option,

or benefit.

Refer to Annex 5.1.5 Discussion Paper: Executive Compensation, Profit Sharing and Bonus for detailed

considerations and examples of when executive compensation, profit sharing and bonus costs may be

acceptable.

Appropriate and Attributable

• Compensation in the form of dividend payments or calculated based on dividend payments are

generally not appropriate or attributable, as they are a distribution of earnings to shareholders,

and not organization operating costs.

• Stock-Based compensation, calculated, or valued, based on changes in the price of corporate

securities are not considered attributable or appropriate. These involve the creation of a contingent

provision to retain and motivate employees, based on events which may or may not occur .Further,

compensation based on changes in securities price is not based on work actually performed.

Reasonable

• No supplementary considerations noted.

•

2.5 Overtime Costs

Description: Overtime is work performed by a contractor’s employee above the normal employee working

time standard. Standards will differ based on the relevant jurisdiction.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

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Attributable

• Overtime costs may be Attributable when it is specifically approved or requested by Canada. The

following are some examples of situations where overtime costs may be approved or requested.

• When the client department requires the contractor’s resources to work above practical capacity in

order to adhere to an accelerated contract schedule.

• When the quicker completion of a contract activity, which requires overtime, may facilitate potential

financial, schedule, and quality benefits for the contract in question.

• Overtime costs are generally not Attributable when it is determined that the contractor has not been

efficient in completing contract activities (e.g. contractors spending significantly longer time on

completion of a contract task than average.

Appropriate

• No supplementary considerations noted.

Reasonable

• The calculation of overtime costs should align with jurisdictional labour regulations or relevant

collective bargaining or employee agreements.

• Limits on the amount of overtime costs could be established in the contract (i.e. a maximum

percentage of the total contract compensation costs).

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2.6 Pension Costs

Description: A pension is any arrangement (contractual or otherwise) by which a program is established

to provide retirement income to contractor employees. Pensions may be in the form of a defined benefit

plan or a contribution plan.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Pension costs are part of an employee’s standard remuneration package; as such, the portion of

pension costs, borne by the contractor would be Attributable, since they reflect the necessary

administrative costs of an employee performing work on a contract.

• Losses associated with pension adjustments/revaluations would not be Attributable as they would be

unrelated to the performance of the contract.

Appropriate

• No supplementary considerations noted.

Reasonable

• The amount of time spent on the contract by the employee, in relation to the amount of time spent by

the employee employed at the contractor, should be assessed when allocating pension costs.

• Current pension costs, whether a defined benefit plan or a defined contribution plan, as provided in the

income statement as an operating cost may be acceptable subject to the considerations below.

• These costs should be reconcilable by the plan to the disclosure notes in accordance with the

relevant Canadian Generally Accepted Accounting Principles (i.e. ASPE or IFRS).

• Defined Contribution Plan: all employer contributions paid or accrued in the year.

• Defined Benefit Plan: the relevant annual acceptable expense will be limited to the current or

‘normal’ service cost charged to the income statement, and not related to the funding of any deficit

cost or past expenses, therefore:

• the current service cost is acceptable, this represents the increase in the pension liability for

an extra year of service for the contractor’s employees; and

• the annual administrative expenses and running costs are acceptable as these are reported

as an operating cost relating to the plan; however

• All other expenses recognized in the income statement which relate to past service costs, any gains

and losses, net interest on the pension liability and all re-measurements recognized through the income

statement are not acceptable.

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2.7 Severance Payments

Description: Severance payments are a cash settlement or paid leave granted to contractor employees

upon termination of employment for various reasons, or upon retirement. Remuneration for earned

vacation credits or compensation for unused sick leave credits is not considered as severance pay. Other

payments excluded from severance pay are return of contributions made to pension plans or retirement

savings programs.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• If the cause of termination that lead to the severance payment for the respective employee is linked

to poor contractor performance (non-compliance or unacceptable behaviour), then the corresponding

severance costs would presumably not be considered Attributable.

Appropriate

• No supplementary considerations noted.

Reasonable

• Severance payments could be calculated in accordance with:

• an employment contract, a collective agreement or enacted legislation;

• an established company policy; and/or

• based on the merits of a particular case.

• The amount of severance costs per employee should be comparable to industry benchmarks.

• The amount of time spent on the contract by the employee, in relation to the amount of time spent by

the employee employed at the contractor, should be assessed when determining an amount to allocate

for severance costs.

• Parameters limiting the cost amount of severance allocated to a contract could be established.

Contract duration is an example of a factor on which a parameter, limiting the amount of severance

costs, could be established (i.e. a positive correlation may exist between contract duration and

employee turnover frequency).

• In order for the allowable severance payment to be deemed Reasonable any amount associated with

the following should not be included:

• profit sharing;

• commissions;

• patent or other rights.

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2.8 Training and Staff Development

Description: The objective of training and development is to improve an employee’s performance through

learning. As an example, training and development can consist of learning new knowledge, technical skills,

and/or soft skills.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Training and staff development which are part of an employee’s standard remuneration package may

be considered Attributable as they reflect the necessary administrative costs of an employee

performing work on a contract.

• Associated training and staff development costs would be Attributable when the contractor’s

employees are required to conduct online government training modules as a direct requirement of the

contract.

• Certain training and staff development activities may enable the contractor to deliver on the

performance of the contract in a more cost-effective, timely, and quality manner. Associated costs may

be Attributable to the contract.

Appropriate

• Attributable training and staff development activities, which are part of an employee’s standard

remuneration package, may be considered Appropriate if the inclusion/occurrence of the activities is

consistent with industry benchmarks.

Reasonable

• The cost amount for Attributable and Appropriate training and staff development activities, which are

part of an employee’s standard remuneration package, should be informed by industry benchmarks.

2.9 Travel Costs and Living Expenses

Description: Travel costs and living expenses are the costs for transportation, lodging, meals and incidental

expenses incurred by a contractor's personnel on official company business.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

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Attributable

• Typically, traveling and living expenses incurred by a contractor in the ordinary course of business are

to be treated as indirect costs chargeable to overhead (which is profit bearing).

• In order for travel costs to be acceptable as direct costs to a contract, the following conditions must be

met:

• such costs are directly attributable to the performance of the work under the contract;

• the practice of charging travel costs to a contract is consistently followed in the costing of both

government and non-government work; and

• all directly charged travel costs are eliminated from indirect costs allocated to government contracts.

Appropriate

• The practice of charging travel costs to a contract is consistently followed in the costing of both

government and non-government work.

Reasonable

• Costs for transportation may be based on mileage rates, actual costs incurred, or on a combination

thereof, provided the method used results in a reasonable charge.

• Costs for lodging, meals and incidental expenses may be based on per diem, actual expenses, or a

combination thereof, provided the method used results in a reasonable charge.

• The Treasury Board (TB) Travel Directive applies to travel expenses incurred on contracts with persons

outside the Public Service, when these expenses are a specific element of the contract. For more

details, consult the TB Travel Directive and Special Travel Authorities. The contracting officer may

accept the contractor's travel and living rates, if they are lower than the TB rates.

• Administrative overhead on travel and living expenses:

• Administrative overhead may be applied to direct travel and living expenses at either full rates,

where adequate support for the claimed general and administrative rate can be demonstrated, or

at a lower negotiated rate where such substantiation cannot be provided (apply SAAC Manual

clause C4000C).

• A contract may provide for direct travel and living expenses to be charged at cost with no allowance

for overhead or profit (apply SAAC Manual clause C4001C).

• Parameters limiting the cost amount of travel costs could be established (For example the amount of

the travel expense parameter could be established as a set percentage of the total contract cost.)

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3) Good/Service Based-Costs

3.1 Bad Debts and Collection Charges

Description: A bad debt is a contractor debt that cannot be recovered. Collection charges are the costs

associated with recovering a contractor debt.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with the bad debts and collection charges are considered non-

applicable costs to the contract.

Since Canada as a debtor always pays its just debts, while it is only the commercial customers who have

bad debts on a contractor's books, the losses due to bad debts and the expenses of collection thereof are

not an acceptable cost to government contracts.

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3.2 Inventory Losses and Obsolescence

Description: Obsolete inventory is a term that refers to contractor inventory that is at the end of its product

life cycle. This inventory has not been sold or used for a period of time and is not expected to be sold in

the future, resulting in losses for the contractor.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Inventory losses and obsolescence may be directly Attributable if it is due to contract production

requirements required by the client department.

• Example: The client department may have asked a contractor to produce a large inventory of

specific goods in the anticipation of requiring these goods for certain international crises; however,

these crises do not occur, and the contractor is left with obsolete goods that no longer have

commercial value. The resulting inventory losses and obsolescence would presumably be

Attributable in this case.

• In circumstances where stock losses or obsolescence costs do not directly apply to contracts they

may still be Attributable. This will only apply when the contractor’s costing system is able to isolate

these stock losses as an indirect overhead.

• The contractor should demonstrate that the inventory losses and obsolescence were unavoidable.

• Inventory losses and obsolescence may be Attributable if the contractor can provide evidence and be

able to demonstrate that write-offs associated with inventory losses and obsolescence were not

because of poor storage, handling, or control.

Appropriate

• No supplementary considerations noted.

Reasonable

 The amount for inventory losses and obsolescence should be the difference between the Net

Realizable Value of the inventory (i.e. value realized through ordinary sale of the inventory less selling

costs) and cost of the inventory in their accounting system.

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3.3 Rework and Faulty Workmanship

Description: Rework is the contractor work required to correct a defective or non-conforming good or

service. Faulty workmanship is rework that occurs due to the contractor’s fault.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• The costs of rework may be required for the performance of the contract; this recognizes that no

production or service process is likely to be completely effective and that attempts to achieve no rework

would be uneconomical for the contract.

• Contractors should have adequate quality control and monitoring systems in place to be able to identify

the level and, where material, the causes of rework.

• The costs of faulty workmanship would not be Attributable where the fault has occurred due to poor

skills, training, systems or materials that the contractor has in place or has purchased.

• Costs associated with faulty workmanship may be Attributable where there is consensus that faulty

workmanship cannot be avoided because of the complexity or lack of maturity of the contract goods

or services.

Appropriate

 No supplementary considerations noted.

Reasonable

• Contracts, of a similar nature, could be referenced to inform what amount of rework and faulty

workmanship may be Appropriate for the contract in question.

• Consideration should be provided to whether rework and faulty workmanship costs are already

reflected in contract profit rate calculations, as a technical risk.

• The contractor should have plans in place to reduce rework costs through learning curve and efficiency

gains.

• Parameters limiting the amount of rework and faulty workmanship costs could be established.

• Example: The amount of the parameter could be established as a set percentage of the total

contract compensation costs.

In the event there is a warranty covering faulty workmanship, refer to warranty and contingencies section

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4.0 Corporate-Based/Various Costs

4.1 Allowance for Interest on Debt and Capital

Description: Allowance for interest on Invested Capital, Bonds, Debentures, Bank or Other Loans with

Related Bond Discounts

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with allowance for interest on invested capital, bonds, debentures,

bank or other loans with related bond discounts and finance charges are considered non-applicable costs

to the contract.

Attributable

• Interest is not an Attributable as the cost-of-money (interest) is already compensated through return

on capital profit rate calculations.

Appropriate

• The method in which a contractor finances their operations is generally not Appropriate as it could

result in unfair treatment of contractors. For example, if interest were to be an acceptable cost, then a

contractor financed by bonds, debentures or long term loans could be in an advantageous position

compared to a contractor financed by the sale of equity.

Reasonable

• No supplementary considerations noted.

4.2 Donations

Description: A donation is a sum of money given to a non-profit generating organization (e.g. charity).

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Note: Donations are under review for changes related to the acceptability of such costs. Currently,

1031-2 allows for donations to charities registered under the Income Tax Act. Consideration is being

made in relation to the Attribution of Donations: Donations of a charitable or a political nature, would

presumably not have a causal relationship with, or otherwise required/beneficial for, the performance

of the contract and hence would presumably not be Attributable. This remains a proposed change for

comment and feedback in Phase 1 of the Guide.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

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4.3 Extraordinary or Unusual Matters or Events

Description: Such events are infrequent, atypical of normal business activities, and not primarily dependent

on decisions made by management. For example, a major earthquake in a region that does not experience

much seismic activity may be considered an extraordinary or unusual event, while a fire caused by

contractor negligence would not be considered an extraordinary or unusual event.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Costs of extraordinary or unusual matters/events, associated with assets that have a causal

relationship with, or are otherwise required/beneficial, for the performance of the contract, may be

Attributable.

Example: Natural disaster flooding occurs at the contractor’s office that destroys materials to be used

in creation of the good. The cost of replacing the materials may be Attributable.

• Extraordinary or unusual matters/events, which can be foreseen, would presumably not be Attributable

as it would be expected that the contractor would pursue preventative measures (e.g. purchase

insurance).

• The cost of extraordinary or unusual matters/events, which is covered by insurance, would presumably

not be Attributable.

Appropriate

• No supplementary considerations noted.

Reasonable

• There should be no recovery of costs associated with extraordinary or unusual matters/events when

these costs have been recovered through insurance proceeds.

• If recovery of costs are not covered through insurance, an independent valuation of the assets and

costs should be submitted by the Contractor.

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4.4 Financial Related Expenses

Description: Financial Expenses include the following:

• Financing Charges: Include costs associated with a contractor’s working and fixed capital.

• Financial Security Issue Costs: Include commissions paid, to investment banks, law firms, auditors,

regulators, for the issuance of contractor debt or equity.

• Financial Reorganization Costs: Costs associated with changing the capital structure, debt or equity,

of the contractor.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, financing charges are considered non-applicable costs to the contract.

Attributable

• Financing Charges, Financial Security Issue Costs and Financial Reorganization Costs would not be

Attributable since the cost is already compensated through return on capital profit rate calculations.

Appropriate

• No supplementary considerations noted.

Reasonable

 No supplementary considerations noted.

4.5 Fines and Penalties

Description: Penalties can be imposed by federal, provincial, municipal or other government authorities.

They may be issued to a contractor in the form of a fine.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, fines and penalties are considered non-applicable costs to the contract.

Attributable

• The amounts of fines and penalties imposed by federal, provincial or local authorities are not an

acceptable cost to government contracts, for to accept such amounts would be tantamount to the

government authority supporting financially the offense which gives rise to the imposition of a fine or

penalty.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

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4.6 Fees for Professional Advice

Description: Fees related to professional advice that are associated with obtaining assistance by the

contractor. This includes professional advice on technical, administrative or accounting matters.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, fees, extraordinary or abnormal for professional advice in regard to technical,

administrative or accounting matters (unless approval from contracting officer is obtained) are considered

non-applicable costs to the contract.

Attributable

• Generally not attributable unless there is a causal relationship with the contract (i.e. professional

engineering consulting fees incurred for the benefit and a requirement specifically stated in the

contract) and approval is obtained from the contracting officer.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

4.7 Goodwill

Description: Goodwill represents the value paid by a contractor on a business enterprise purchase in

excess of the fair value of the acquired firm's assets less the assumed liabilities. This amount is based on

the anticipated growth and earnings of the newly acquired company.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Business combinations, such as the acquisition of a company or a business, may result in the creation

of goodwill. The business combination would not have a causal relationship with, or otherwise

required/beneficial for, the performance of the contract and hence would presumably not be

Attributable.

• Any cost related to goodwill including amortization, expensing, write-off, or write-down of this intangible

asset called goodwill (however represented) is not acceptable.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

174 | Page Public Services and Procurement Canada September 30, 2019

4.8 Insurance

Description: Insurance provides a contractor and its employee financial protection from potential and/or

uncertain losses.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, premiums for life insurance on the lives of officers and/or directors where proceeds

accrue to the Contractor is considered a non-applicable cost to the contract.

Attributable

• Proceeds from such life insurance need not be applied to reduce any cost to the contractor. Premiums

on this type of insurance are not acceptable in government contracts since Canada does not derive

any benefit therefrom.

• Insurance (e.g. medical), which is part of an employee’s standard remuneration package, may be

considered Attributable as they reflect the necessary administrative costs of an employee performing

work on a contract.

Other insurance types may be Attributable if they have causal relationship, or are otherwise, required

for the performance of the contract.

• Example: Insurance covering buildings, equipment, vehicles, and other assets used for the contract

in question may be Attributable.

Appropriate

• Attributable insurance types may be considered Appropriate if the inclusion/occurrence of the

insurance is consistent with industry and geography benchmarks.

• Insurance types used by the contractor to cover itself against its own performance in delivering the

contract in question would not be considered Appropriate.

• Example: This could include insurance against faulty workmanship, defective parts, breach of

contract, or loss or profit associated with poor performance.

Reasonable

• The cost amount for the premiums of Attributable and Appropriate insurance should be comparable to

industry/geography norms.

• Insurance proceeds, related to acceptable insurance policy premiums, should be directly, or indirectly,

apportioned to contract(s), as a credit to corresponding costs (i.e. costs which the insurance policy

covered).

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4.9 Legal, Accounting and Consulting Fees in Connection with Financial Re -Organization, Security

Issues, Capital Stock Issues, Obtaining of Patents and Licenses and Prosecution Against the

Crown

Description: These include legal, accounting and consulting fees in connection with financial re-

organization, security issues, capital stock issues, obtaining of patents and licenses and prosecution

against the Crown.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, legal, accounting and consulting fees in connection with financial re-organization,

security issues, capital stock issues, and prosecution against the Crown are considered non-applicable

costs to the contract.

A distinction should be drawn between the occasional expenses in relation to the raising of capital referred

to here, which are not an acceptable cost, and the normal recurring expenses associated with the day-to-

day management and recording of capital transactions, which are an acceptable cost. The latter expenses

include those arising from the registry and transfer of share capital when they form part of the activity of

the company secretary, costs of share holders' meetings, normal proxy solicitations, reports to

shareholders, submission of required reports to government agencies, reasonable directors' fees and

incidental expenses of directors and for committee meetings.

Attributable

• No supplementary considerations noted.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

4.10 Losses on Investment

Description: Losses on investments are losses incurred by the contractor due to its investments in equity

and/or debt.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, losses on investment are considered non-applicable costs to the contract.

Attributable

• Losses on investments would not have a causal relationship with, or otherwise required/beneficial for,

the performance of the contract and hence would presumably not be Attributable. It is the responsibility

of the contractor to manage investment decisions, and any losses would likely be independent of the

requirements of the contract.

Appropriate

 No supplementary considerations noted.

176 | Page Public Services and Procurement Canada September 30, 2019

Reasonable

• No supplementary considerations noted.

4.11 Losses on Other Contracts

Description: Losses on other contracts occurs when these contracts’ respective revenues are lower than

their respective costs.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, losses on other contracts are considered non-applicable costs to the contract.

Attributable

• Losses on other contracts would not have a causal relationship with, or otherwise required/beneficial

for, the performance of the contract in questions and hence would presumably not be Attributable.

• This principle also applies to application by a contractor of preferred overhead rates to certain

contracts. Where this occurs, the excess of actual overhead over the preferred overhead amount will

not be absorbed by government contracts.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

4.12 Patents and Licenses

Description: Patents apply to newly developed technology as well as to improvements on products or

processes. Patents provide a time-limited, legally protected, exclusive right to make, use and sell an

invention. Licenses defines the terms under which an intangible property (e.g. intellectual property) is

licensed for use by one party (e.g. the contractor) to another party (e.g. Canada).

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Costs related to a patent/license (e.g. legal fees, consulting fees, etc.) that will subsequently be owned

by Canada may be Attributable if the patent/license can provide future value to Canada.

• Costs and professional fees for patents/licenses that will be maintained by the contractor or were

previously owned by the contractor prior to the commencement of the contract would not be

Attributable.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

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4.13 Prosecution of Claims Against the Crown

Description: Examples of costs associated with prosecution of claims against the Crown would include

legal fees.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, costs associated with prosecution of claims against the Crown are considered non-

applicable costs to the contract.

Attributable

• Costs associated with prosecution of claims against the Crown would presumably not have a causal

relationship with, or otherwise required/beneficial for, the performance of the contract and hence would

presumably not be Attributable.

Appropriate

• No supplementary considerations noted.

Reasonable

• No supplementary considerations noted.

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4.14 Provisions for Contingencies and Warranty Costs

Description: A contingency liability is a liability which could arise on the happening of some event which

may or may not occur.

Warranty costs include those arising from fulfillment of any contractual obligation of a contractor to provide

services such as installation, training, correcting defects in the products, replacing defective parts, and

making refunds in the case of inadequate performance.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, provisions for contingencies are considered non-applicable costs to the contract.

Attributable

• The initial provision or increase of funding for a contingent liability is considered to be a setting aside

of earned profits to meet possible liabilities against future profits and not a business operating cost

and therefore not an acceptable cost to government contracts.

• There is one exception to the above and that is in respect of the acceptability of costs for the provision

of warranties. A contractor may include as a cost a reasonable amount to be set aside as a provision

for the absorption of expenses associated with warranties given under the terms of the contract, upon

formal request by Canada.

• With respect to warranties, ensure the costs are not already compensated in the technical risk

premium in the profit calculation.

Appropriate

• Contracts, of a similar nature, could be referenced to inform what type of warranty costs may be

Appropriate for the contract in question.

Reasonable

• In determining a Reasonable amount, the following factors should be taken into account:

• Amounts provided for warranty expenses should be separate for each distinctive product or family

of products;

• Amounts provided should reflect, where available, the previous performance of the product(s) in

regard to warranty, using an average of three to five years;

• Cost of any provision for warranty charged to a specific contract should reflect any difference in

the warranty period from that normally granted by a contractor on the product(s); and

• Costs should be net of any warranty contract sales to other customers.

• Consideration should be provided to whether warranty costs are already reflected in contract profit

rate calculations, as a technical risk.

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4.15 Refunds

Description: Money received back pertaining to a cost incurred

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Attributable

• Refunds which are associated with a contract cost would be Attributable.

• Refunds should be traceable to the corresponding contract costs.

Appropriate

• No supplementary considerations noted.

Reasonable

• A refund should be applied as a credit to the contract cost with which it is associated.

4.16 Research and Development

Description: There are two primary types of Research and Development costs, undertaken with the

expectation of generating future sales or reducing future costs.

1. General Research and Development: A planned investigation undertaken with the hope of gaining new

scientific or technical knowledge and understanding. Such investigation may, or may not be directed

towards a specific practical aim or application.

2. Product Development and/or Improvement: A systematic program of work, going beyond basic and

applied research which is directed towards the creation of a new or improved product, system, component

or material, substantially in a marketable form, but excluding any manufacture beyond completion of the

new and improved product's prototype.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2 Indirect Costs Section 04 (02) (h)

General research and development expenses as considered applicable by Canada may be included in

Indirect Costs (Overhead).

Under SACC 1031-2, Non-applicable Contract Costs, Section 7(m)

Product development or improvement expenses not associated with the product being acquired under the

contract are considered non-applicable costs to the contract.

General Research Phase

• Research phase is taken on with the prospect of gaining new knowledge and understanding. The

company is researching the unknown, and therefore, at this early stage, there is no future economic

benefit.

180 | Page Public Services and Procurement Canada September 30, 2019

• The expenditure is treated as an expense as incurred and must be assessed through the Appropriate,

Attributable and Reasonable criteria accordingly.

Product Development Phase

• Development phase is the application of research findings/knowledge to a plan for the production or

creation of new or substantially improved materials, devices, products, processes, systems, or

services, before the start of commercial production or use.

• Should be assessed to determine if the cost meets the criteria Attributable, Appropriate and

Reasonable, as well as meeting the criteria of an intangible asset, such that the contractor can

demonstrate the existence of a market/value for the output of the development. See Annex 5.2.4

(Discussion Paper - Research and Development Costs).

Attributable

• No supplementary considerations noted.

Appropriate

• No supplementary considerations noted.

Reasonable

• Development costs recorded as intangible assets are recovered directly through the costs of the

relevant products in line with the acceptable Canadian accounting standards; Canadian Generally

Accepted Accounting Principles (i.e. ASPE or IFRS) as they are sold provided:

• the total development costs applicable can be separately identified.

• the costs were not previously allocated to a government contract, directly or indirectly.

The costs are prorated to specific product sales appropriately to all customers.

4.17 Sales and Marketing Costs

Description: Sales and Marketing costs are primarily incurred by contractors to generate future sales of

their goods or services. Examples of sales and marketing activities include selling, public relations,

advertising and entertainment.

Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, advertising, except reasonable advertising of an industrial or institutional character

placed in trade, technical or professional journals for the dissemination of information for the industry or

institution (7n) and entertainment expenses (7o) are considered non-applicable costs to the contract.

Refer to Annex 5.1.4 (Discussion Paper: Sales and Marketing Costs) for additional details and

considerations on when Sales and Marketing costs may be acceptable.

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Attributable and Appropriate

• Entertainment expenses are not attributable or appropriate to Canada. This includes expenses for

amusement, diversion, social activities, and incidentals. In some circumstances, if it may be possible

to demonstrated that expenses associated with meetings and conferences, when called for the

dissemination of technical information or discussion of production problems and the like, are

acceptable.

• Advertising that supports the publications of trade, technical or professional journals for the

dissemination of information for the industry may be considered acceptable in the event the

contractor's employees use the journals to enhance knowledge and skills that lead to increased

knowledge, efficiency and productivity benefits for the government contract, provided the Advertising:

• Is not display advertising, and is institutional or support advertising only

• Does not advertise a particular product or service of a contractor

• Is not a financial publication geared primarily to investors, versus industry or trade

• Advertising expenses associated with recruiting and employment opportunities may be considered

an acceptable cost, provided they are reasonable

Reasonable

• Sales and marketing costs must be allocated fairly between Canada and the contractor. Consideration

must also be given to ensure the benefits balance or outweigh the associated costs. Additional

allocation considerations include the following:

 selling and marketing expenses should be clearly identified by a contractor as distinct from other

indirect costs to the extent, where warranted, of creating a separate cost pool for these

expenses;

 where a contractor manufactures more than one particular product or provides more than one

particular service, the selling and marketing expenses specifically identifiable with each

particular product or service should be allocated directly thereto with any general expenses

being prorated equitably across all products or services; and then

 a pro-rata share of the selling and marketing expenses allocated in accordance with the

particular products or services or family of products or services being acquired under the

contract included in the applicable overhead costs of the contract

4.18 Taxes

Description: In Canada, taxes may be assessed at the federal, provincial/territorial, and municipal level.

Examples of tax types include income tax, consumer tax, property tax, and import/export tax.

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Supplementary Considerations for the Criteria of Attributable, Appropriate, and Reasonable

Under SACC 1031-2, federal and provincial income taxes, excess profit taxes or surtaxes and/or special

expenses in connection with those taxes are considered non-applicable costs to the contract.

Attributable

 Tax accounting principles should be employed to determine the applicable tax types.

 Taxes, assessed on the inputs, which are causal with, or otherwise required/beneficial for, the

performance of the contract, cannot be avoided.

 Example: Types of inputs are raw materials, employees, and assets (e.g. factory). Respective taxes

of these inputs are sales tax, payroll tax, and property tax.

Appropriate

 Taxes assessed on income (e.g. income tax) would not be an Appropriate cost.

 Note: Tax Refunds are under review for potential changes related to the applicability of such credits

against appropriate contract costs. Currently, the Supply Manual states that all tax refunds, federal or

provincial, are not required to be applied to reduce any related expenses. Consideration is being made

to suggest that refunds/credits relating to applicable costs, for example as detailed in the attributable

tax costs defined above, should be applied as a credit to the related appropriate contract cost. This

remains a proposed change for comment and feedback in Phase 1 of the Guide. Refer to 4.15

Refunds cost table for related guidance on Refunds.

Reasonable

 The amount paid by the contractor for Attributable and Appropriate taxes would be considered

Reasonable (in accordance with Canadian Tax Regulations).

General Considerations for Costing

Principles-Based Guidance for Determining Contract Costs

Rules-based standards state explicit requirements that must be followed without deviation, while principles-

based standards permit the exercise of professional judgment to fit the circumstances, providing flexibility to

promote creativity and innovation in the procurement of goods and services.

Costing in Canada is a principles-based approach for assessing the acceptability for contract costs. The

overarching principle is contracting for value to Canada. The application of the criteria between contracts

should be consistent, but the outcomes, in terms of contract cost acceptability, may differ depending on the

complexity of the contracts in question. A principles-based approach to determining contract costs requires

183 | Page Public Services and Procurement Canada September 30, 2019

professional judgement. For further guidance on the merits of principles-based guidance, refer to Annex

5.1.2 (Discussion Paper: Rules-Based versus Principles-Based Standards).

Financial and Cost Accounting Work Together to Determine Contract Costs

Financial accounting is used to report the expenses and revenues, assets and liabilities, and cash flow

position of an enterprise to external users, typically on a quarterly and annual basis. For example, Canada

reports its public financial statements using financial accounting.

Cost accounting is used internally to report costs for decision-making purposes for various cost objects (e.g.

goods and services, departments, programs, contracts etc.). For example, in Canada, cost accounting is

used to inform cost-benefit, capital investment, cost-recovery and other decisions.

Both financial accounting and cost accounting principles should be used to determine the cost base to price

a contract. Financial accounting can be used to generate the initial source of cost information for a contract,

while cost accounting can be used to allocate/adjust this cost to derive the cost basis of a contract.

For further guidance on how financial and cost accounting work together to determine contract costs, refer

to Annex 5.1.1 (Discussion Paper: Financial Accounting versus Cost Accounting).

Reporting Costs on an Accrual Basis Instead of a Cash Basis

Accrual accounting records events in the period in which they are incurred (incurred cost) whereas cash

accounting records the events only when cash is received/paid. Under the accrual method, the matching

principle is followed to recognize revenues in the same period as the expenses that were incurred to earn

those revenues. With the cash method, only the receipt or payment of cash triggers the recognition of a

transaction which can create timing differences when these transactions are recorded compared to the

accrual method, i.e. expenses may be recorded in an earlier period than when revenues are recorded due to

the difference in timing of the actual payment of expenses and receipt of revenues.

Accrual accounting should be used as the basis for measuring cost when establishing non-competitive

government contracts. The accrual method for measuring cost estimates and actual costs would generally

be appropriate for most cost types where the amount can be estimated and there is a sufficient level of

certainty of occurrence.

The cash method may provide better value to Canada for cost types where the amount cannot be accurately

estimated and/or there is insufficient level of evidence for occurrence. The cash method is rarely used.

For further guidance on the applicability of accrual versus cash accounting on contract costs, refer to Annex

5.1.3 (Discussion Paper: Accrual versus Cash Based Accounting).

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ANNEX 3: CONTACT INFORMATION

Organization

Organization Description

Contact Information

Professional

Practices Group

(PPG)

The Professional Practices

Group (PPG) provides

guidance to the other groups

within PSSS and is responsible

for the administration of the

Professional Practices

Framework for the sector.

TPSGC.padgamtp-appbipm.PWGSC@tpsgc-

pwgsc.gc.ca

Price Advisor Group

(PAG)

The Price Advisory Group

(PAG) is responsible for direct

support in the negotiation of

interim rates or cost-base for

pricing and advice to

contracting officers on basis of

payment.

TPSGC.PADSPVACAssistance-

APCCAAPDAssistance.PWGSC@tpsgc-

pwgsc.gc.ca

Assurance Services

Group (ASG)

The Assurance Services

Group (ASG) provides contract

related assurance and advisory

services on credibility, integrity,

and reliability of financial and

non-financial information used

to support contractor claims.

tpsgc.padgagsc-APPBASG.pwgsc@tpsgc-

pwgsc.gc.ca

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ANNEX 4: PROCESS STEPS FOR COST ACCOUNTING PRACTICES SUBMISSION (CAPS)

Process Steps

Process Description

Initiate The Process

• The contracting officer identified in the solicitation document initiates the CAPS

process.

Provide and

Complete Template

• The contractor will be provided with a template for the Cost Accounting Practices

Submission (CAPS) by the Procurement Support Services Sector.

• Contractors can complete and submit the CAPS tool to the point of contact

identified in the solicitation document.

• Any questions about this document should also be directed to the point of

contact identified in the solicitation document.

Review of the CAPS

• The Procurement Support Services Sector will review the CAPS. Requests for

clarification or additional information from the Contractor may be made.

Review of CAPS: Items are assessed to determine whether or not they are

in accordance with SACC 1031-2.

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Documentation and

Contract

Amendment

• The contracting officer will incorporate the CAPS in the contract by way of a

certification by the contractor.

• The original CAPS will be retained by the Procurement Support Services Sector

and a copy distributed to the client department and contracting officer.

Refer to the CAPS Questionnaire for additional information.

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ANNEX 5: DISCUSSION PAPERS

ANNEX 5.1.1 (DISCUSSION PAPER - FINANCIAL ACCOUNTING VS. COST ACCOUNTING)

Financial Accounting versus Cost Accounting for Reporting Contract Costs

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a

competitive process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations

and manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this

requires considerable support from the contracting team, which may include price advisors, client

department representatives and other subject matter experts. This discussion paper is not intended to be

a procedural document.

Why This Matters?

Financial accounting and cost accounting can be used to determine the cost base to price a contract.

When contractors rely primarily on financial accounting, without proper consideration of cost accounting,

to report contract costs, the reported costs may not be attributable, appropriate, and reasonable. As such,

clear direction around the application of both financial and cost accounting is required to help ensure that

reported contract costs meet these criteria and ultimately optimize value to Canada.

Recommendation

Both financial accounting and cost accounting principles should be used to determine the cost base to

price a contract. Financial accounting can be used to generate the initial source of cost information for a

contract, while cost accounting can be used to adjust this cost information and derive the cost basis of a

contract.

This initial source of cost information can be relied on more heavily when the cost-based payment for the

contract, or components or phases of the contract, is determined by actual costs. When the basis of

payment is determined by cost estimates, the initial source of cost information may provide a historical

basis to estimate costs; however, additional data

will be required to develop a sound cost estimate.

Ultimately, the application of both financial and cost accounting will help ensure that the costs included in

a contract are attributable, appropriate, and reasonable.

Discussion on the additional data required to develop a cost estimate is out of scope.

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Analysis

This section first describes the purpose and key principles of financial and cost accounting as it pertains

to cost reporting, identifies the similarities between them, and explains their differences. Second, it

describes how financial and cost accounting work together to determine the cost basis of a contract. Last,

it identifies potential challenges that contractors may experience in determining the cost basis of a

contract.

A. Cost and Financial Accounting as it pertains to Cost Reporting

Purpose and Key Principles of Financial Accounting

Financial accounting is used to report the expenses and revenues, assets and liabilities, and cash flow

position of an enterprise to external users, typically on a quarterly and annual basis. For example, the

Government of Canada reports its public financial statements using financial accounting.

In financial accounting, a cost might be in the form of an expense or an asset. Generally, a cost is an

expense (e.g. depreciation), if it relates to the revenue incurred by an enterprise during a specified period,

and an asset (e.g. equipment cost) if it provides future economic benefit to the enterprise.

Financial accounting is governed by a set of authoritative publically available principles.

From a cost

reporting perspective, these principles:

1 identify conditions under which a cost type

should be recognized (e.g. reporting expenses in the same

period the corresponding revenues are incurred);

2 identify the conditions and options for measuring the amount of a cost type (measuring an asset at

historical cost vs. fair market value); and

3 identify that supporting information for the cost type and amount should be disclosed such that the

level of detail and understandability is balanced with the cost of producing the supporting information

(e.g. supporting calculations and assumptions for fair market value measurement of an asset).

Purpose and Key Principles of Cost Accounting

Cost accounting is used internally to report costs for decision-making purposes for various cost objects

(e.g. goods and services, departments, programs, contracts etc.). For example, in the Government of

Canada, cost accounting is used to inform cost-benefit, capital investment, cost-recovery and other

decisions.

In cost accounting, costs must be allocated to cost objects as either direct or indirect costs. In alignment

with the Treasury Board Secretariat (TBS) Guidelines on Costing, costs are considered direct, when they

are incurred solely to support one cost object

, and indirect, when they are incurred to support more than

one cost object. Indirect costs may be allocated to cost objects using cost pools, groupings of

homogeneous or like cost types (e.g. employee-based costs).

CPA Canada Handbook, International Financial Reporting Standards, 2018 Edition, 2017.

Examples of cost types include depreciation, research and development, executive compensation, and others.

Guidelines on Costing. Treasury Board Secretariat, January 2016, https://www.tbs-sct.gc.ca/pol/doc-eng.aspx?id=30375, Accessed 1 March 2018.

189 | Page Public Services and Procurement Canada September 30, 2019

The TBS Guidelines on Costing identifies six principles for costing

1 costing requires stakeholder consultation and judgement;

2 costing must be done for a specific purpose (different purposes require different information);

3 costing should be done consistently for costing exercises that have the same purpose so that the

resulting information will be comparable;

4 costs can be affected by changes in the level of activity of a cost object in three main ways:

 costs can change in proportion to changes in the level of activity of a cost object;

 costs can remain constant regardless of changes in the level of activity of a cost object; and

 costs can remain constant with a particular range of activity but when change when the level of

activity of a cost object passes a specific amount.

5 data used in a costing exercise must of high quality and must be reasonable, consistent, defensible,

reconcilable and current; and

6 the benefits of cost information (i.e. level of detail, timeliness, accuracy, and complexity) must be

balanced against the cost of producing it.

Similarities and Differences between Financial Accounting and Cost Accounting

The principles identified for financial accounting and cost accounting are not mutually exclusive. For

example, even though the cost accounting principle of stakeholder consultation and judgement is not

authoritatively identified as a financial accounting principle, it is required for financial accounting.

The key similarities between financial and cost accounting, pertaining to cost reporting, are identified

below:

 professional judgment and stakeholder consultation are required to determine costs;

 cost types (e.g. deprecation, research and development, executive compensation) and amounts

need to be recorded and tracked using a reliable accounting system;

 information, supporting costs, should be of high quality and balanced against the costs of

producing the information; and

 consistent accounting methods should be used for costing exercises that have the same purpose.

The key differences between financial and cost accounting, pertaining to cost reporting, are identified

below.

 Financial accounting principles provide authoritative standards for identifying conditions, under

which a cost type should be recognized, and for identifying conditions and options for measuring

the amount of a cost type. Cost accounting does not provide the same degree of authoritative

standards.

IBID

TBS uses the term costing instead of cost accounting in its guide.

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 Financial accounting is used to reports costs of one final cost object (the enterprise) for the same

purpose(s), while cost accounting can be used to report costs for several cost objects for different

purposes.

 Financial accounting generally only needs to track data to report on amounts for cost types. For

cost accounting, additional, or less, financial data or non-financial data (e.g. about the activity that

drives a cost) may need to be tracked depending on the purpose of the respective costing exercise

and/or in order to allocate costs to cost objects.

 Compared to financial accounting, cost accounting requires an increased understanding of how

the cost will change in relation to changes in the level of activity of the cost object; this is of

particular importance for allocating indirect costs to cost objects and for developing cost

estimates.

 Financial accounting generally requires reports only at the end of a reporting period, while cost

accounting may require reports at any time and with any degree of frequency depending on user

needs.

Key Takeaways for Financial Accounting and Cost Accounting

Based on the identified similarities and differences between financial and cost accounting, two key

takeaways have been identified.

 Cost accounting routinely relies on the cost information produced by financial accounting.

Financial accounting provides authoritative standards for generating an initial source of cost

information (e.g. cost types and amounts). Cost accounting may further transform this cost

information, depending on the purpose of the costing exercise, through:

 the collection of additional financial or non-financial data requirements;

 the application of a different cost measurement basis;

 the classification of costs as direct or indirect,

 the pooling of homogeneous costs;

 the allocation of costs to cost objects; and/or

 the development of cost estimates.

 Cost accounting can be time consuming and difficult. Producing accurate and complete

reports based on cost accounting can be time-consuming and difficult due to:

 the additional data required, particularly for allocating costs and developing cost estimates;

and/or

 the misalignment of timings with financial accounting reporting dates, particularly for reporting

actual contract costs.

The first takeaway is elaborated on in the next section and the second takeaway is explained in the

Contractor Challenges for Producing Contract Cost Reports section of the discussion paper.

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B. How Financial and Cost Accounting Work Together to Determine Contract Costs

In order to depict how financial and cost accounting work together to determine contract costs, the purpose

of contract costing must be discussed.

The purpose of contract costing is to determine what costs, types and amounts, should be acceptable for

contracts, or components or phases of contracts, for which the basis of payment is cost-based (i.e.

determined by actual costs, cost estimates, or a combination thereof), so that the best value is provided

to Canada

Value to Canada, from a contract costing perspective, can be determined by a contract cost’s alignment

to three criteria.

 Is the cost type attributable to the contract, including whether the cost type has a causal

relationship with, or otherwise required/beneficial for, the performance of the contract?

 Is the cost type appropriate for the contract, including whether the inclusion of the cost type in

the contract is fair and equitable?

 Is the amount of the cost type for the contract reasonable, including whether the amount is

consistent with good business practices, congruent with contract performance, and fairly

allocated?

Note that the criteria of attributable and appropriate are used to determine if a cost type should be accepted

for a contract, while the criterion of reasonable is used to determine what amount of an attributable and

appropriate cost type should be accepted for a contract. If these criteria are met, it implies that accepting

the cost is of value to Canada. These criteria, as they apply to contract costs, are explained in further

detail in the Costing Standard.

The application of both financial and cost accounting ultimately ensure that the costs included in a contract

are attributable, appropriate, and reasonable. Financial accounting can be used to generate the initial

source of cost information for a contract, while cost accounting can be used to adjust this cost information

and derive the cost basis of a contract. The below diagram depicts how these two accounting types work

in tandem to determine a contract cost that provides value to Canada.

Canada is representative of The Government, including the customer(s), the industry including the contractor, and the Canadian taxpayers.

192 | Page Public Services and Procurement Canada September 30, 2019

Exhibit 1 Financial and Cost Accounting Work Together to provide Value to Canada

Note that the above diagram does not explain every step and detail involved in the application of financial

and cost accounting for determining contract costs. Furthermore, it does not detail all of the sub-criteria

and considerations that should be met to achieve a contract cost that is attributable, appropriate, and

reasonable. As previously stated, these criteria are explained in further detail in the Costing Standard.

The intent of the diagram is to depict that financial accounting can provide an initial source of authoritative

information for determining contract costs. This initial source of cost information can be relied on more

heavily when the basis of payment for the contract, or components or phases of the contract, is determined

by actual costs. When the basis of payment is determined by cost estimates, the initial source of cost

193 | Page Public Services and Procurement Canada September 30, 2019

information may provide a historical basis to estimate costs; however, additional data

will be required to

develop a sound cost estimate.

Current Guidance for the Use of Financial and Cost Accounting for Contract Costing in Canada and

Comparators

Canada

: Current guidance implies that the use of cost accounting is required to determine the cost basis

of a contract. No explicit guidance is provided for the role of financial accounting.

Australia

: Current guidance states that a contractor’s contract cost report should not focus on

compliance to the financial accounting system, but rather to the criteria identified in the guidance for

assessing allowable contract costs. The guidance implies that cost accounting is required to determine

the cost basis of a contract. However, no explicit guidance is provided on how financial and cost

accounting can work together to determine the cost basis of a contract.

United Kingdom

: Current guidance states that although contractors may adopt a variety of accounting

policies and make judgements in the preparation of financial statements for statutory reporting purposes,

the application of these policies will not necessarily result in the correct treatment of costs for contracts.

The guidance implies that cost accounting, and not financial accounting, should be used as the primary

lens to determine the cost basis of a contract. However, no explicit guidance is provided on how these two

types of accounting can work together to determine the cost basis of a contract.

United States

: Current guidance is aligned with the Government’s Cost Accounting Standards. No

explicit guidance is provided for the role of financial accounting.

In summary, the recommendations in this Discussion Paper do not contradict benchmark guidance. Costs

produced by financial accounting provide just the initial source of cost information for deriving the cost

basis of a contract. In order to derive the cost basis of a contract, which meets the criteria of attributable,

appropriate, and reasonable, cost accounting must be used.

C. Contractor Challenges for Producing Contract Cost Reports

As previously identified, producing accurate and complete reports based on cost accounting can be time-

consuming and difficult due to the below reasons:

 the additional data required, particularly for allocating costs and developing cost estimates;

and/or

 the misalignment of timings with financial accounting reporting dates, particularly for reporting

actual contract costs.

Discussion on the additional data required to develop a cost estimate is out of scope.

Contract Cost Principles. SACC Manual, Public Service Procurement Canada, 16 July 2012, https://buyandsell.gc.ca/policy-and-guidelines/supply-

manual/annex/10/5/13, Accessed 29 October 2017.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Capability Acquisition & Sustainment Group Cost

Principles, October 2017.

Single Source Regulations Office, Single source cost standards-Statutory guidance on Allowable Costs, February 2018.

United States General Services Administration Federal Government, Federal Acquisition Regulations, 17 August 2007.

194 | Page Public Services and Procurement Canada September 30, 2019

These challenges, and potential mitigation strategies, are elaborated on further below.

The additional data required, particularly for allocating costs and developing cost estimates.

Tracking and collecting certain cost data, which can be both financial and non-financial in nature, may be

time consuming, costly, and even infeasible. For example, estimating multiple years’ worth of accurate

cost activity information (e.g. forecasted time spent by employees on a contract) to allocate costs (e.g.

employee benefits) can be time-consuming and potential infeasible depending on the complexity and

uncertainty of the scope of the contract. These challenges may be even more applicable for small and

medium-sized enterprises (e.g. start-up companies) since these suppliers may not have sufficient

accounting capabilities to sufficiently collect and track the data required to estimate and/or allocate

contract costs.

To mitigate the above challenge, the cost-based payment type used for the contract, or portions or phases

of the contract, could provide consideration to the contractor’s ability to collect and track the supporting

data required to determine the cost basis of the contract. For example, depending on the nature of the

data requirements, certain portions or phases of a contract could have basis of payments which are

informed by actual costs instead of cost estimates.

The misalignment of timings with financial accounting reporting dates, particularly for reporting

actual contract costs. The schedule for providing contract cost reports to the Government may not align

with the schedule for releasing financial accounting reports. Depending on the type of accounting system

being used by a contractor, certain costs may only be reconciled at financial accounting reporting dates;

as such, contract cost reports may not be 100% accurate and complete.

To mitigate the above challenge, the Government and contractor could, at the outset of the contract,

mutually determine a schedule for cost reporting over the contract’s duration, such that the contractor is

able to report accurate and complete costs.

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ANNEX 5.1.2 (DISCUSSION PAPER - RULES-BASED VS. PRINCIPLES-BASED

STANDARDS)

Rules-Based Versus Principles-Based Standards

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts. It is one of a suite of documents (e.g. other discussion papers, the Costing Standard, Overview

of Canada’s Profit Policy and Review of Comparator Jurisdiction, etc.) developed to support PSPC’s

review of Canada’s pricing framework. Together, these documents provide recommendations for updated

guidance, with respect to pricing for non-competitive contracts, including mechanisms to help address the

challenges with Canada’s current Cost and Profit Policy.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations

and manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this

requires considerable support from the contracting team, which may include price advisors, client

department representatives and other subject matter experts. This discussion paper is not intended to be

a procedural document.

This guidance paper considers the merits of rules versus principles based standards that may be

considered for PSPC’s revision of Canada’s pricing framework that is intended to provide guidance for

contracting officers when negotiating a contract that includes a good understanding of contractor costs to

help inform and negotiate the price of a non-competitive contract.

The overarching principle is contracting for value to Canada. The underlying principles for determining if

contract costs are of value to Canada, are the criteria of Attributable, Appropriate, and Reasonable. The

application of the criteria between contracts should be consistent, but the outcomes, in terms of contract

cost acceptability, may differ depending on the complexity of the contracts in question.

A principles-based approach to determining contract costs requires professional judgement. As such,

education and training is required to minimize different interpretations of the criteria of Attributable,

Appropriate, and Reasonable.

Research completed to understand approaches in the UK, USA and Australia noted that no jurisdiction

follows a completely principle or a rules-based approach, rather each follow a hybrid approach with more

reliance on one approach. Current PSPC guidance includes principles as well as rules and also places an

emphasis on cost and profit, whereas the revised guidance is intended to both consider the current

approach as well as emphasize price and value.

Includes 1031-2 (“Contract Cost Principles”) of the Standard Acquisition Clauses and Conditions and Chapter 10 (“Cost and Profit”) of the Supply Manual

196 | Page Public Services and Procurement Canada September 30, 2019

Some of the trade-offs between a rules and principles based approach include the following:

Advantages

Disadvantages

Rules

• Consistency of application

• Less professional judgement required

with focus on step by step process to

apply rules

• Training to rules simpler (e.g.

classroom, online)

• Little room to exercise professional

judgement

• Many rules required that envisage a

multitude of possible scenarios that

must be maintained over time

• Rules can still be subject to

interpretation

Principles

• Ability to exercise professional

judgement

• Provides flexibility in negotiating

contracts

• Focus on maximizing value to Canada

• Differing interpretation may lead to

inconsistent approaches in negotiating

contracts and unintended outcomes

after contracts are negotiated

• Training to principles not as simple,

requires learning and development over

time combining formal (e.g. classroom,

online and informal training (e.g.

mentoring)

Why This Matters?

The application of either rules-based or principles-based approach can impact which costs are allowable,

and the level of judgement required to apply principles, within a contract for goods and/or services. By

better understanding the merits and limitations of both methods, as well as their implications to inform the

understanding of costs from which to negotiate the price of a contract; contracting officers can incorporate

the most appropriate approaches and judgements to deliver maximum value for Canadians. As a result,

these standards can assist in establishing a more consistent practice across government with regards to

the acceptance of allowable cost types.

Recommendation

The recommendation for Canada is to implement a principles-based approach with recommendations,

where applicable, for expected practice and examples of appropriate deviations provided based on sound

principles. The three key principles to be followed are Attributable, Appropriate and Reasonable.

Contracting officers should consider these three principles when considering the costs put forward by

contractors to inform the negotiation of price. This approach will assist in achieving improved consistency

of practice with principles-based standards that encourage flexibility and innovation to support maximizing

the value for Canadians derived from non-competitive contracts. For example, the use of historical cost is

recommended (the recommendation based on the cost principle), but the use of replacement cost or

opportunity cost may be appropriate in certain instances (buy and sell principle of best value). With

recommendations and principles that emphasize the benefits for all parties involved, the contract becomes

a vehicle to promote clarity and fairness that go beyond agreement on the specific costs to be allowed.

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Analysis

A. Rules-Based versus Principles-Based Standards

Rules-based standards state explicit requirements that must be followed without deviation, while

principles-based standards permit the exercise of professional judgment to fit the circumstances, providing

flexibility to promote creativity and innovation in the procurement of goods and services.

Although rules-based standards allow for consistency and comparability, there is considerable effort

required to provide a list of rules that envision all possible scenarios when negotiating a non-competitive

contract. Under a principles-based approach, the use of professional judgment informed by principles

enables adaptability to a changing environment and the unique circumstances for a particular goods or

services procurement resulting in benefits to all stakeholders involved. Consistency needs to be

demonstrated within an acceptable range, requiring documentation of alternatives analysis and

decision/approval. Principles inherently allow for experimentation, contractors must be afforded similar

treatment and public disclosure required to inform the marketplace and account to Parliament for due

exercise of professional judgment.

The current approach for Canada includes a combination of principles and rules. Principles noted in

Canada’s current contract costing guidance, for example, include general principle and reasonable cost.

• General Principle - “The total cost of the Contract must be the sum of the applicable direct and

indirect costs which are, or must be reasonably and properly incurred and/or allocated, in the performance

of the Contract, less any applicable credits. These costs must be determined in accordance with the

Contractor's cost accounting practices as accepted by Canada and applied consistently over time.”

• Reasonable cost – “A cost is reasonable if the nature and amount do not exceed what would be

incurred by an ordinary prudent person in the conduct of a competitive business.”

Rules noted in Canada’s current contract costing guidance include a list of costs that are non-applicable

to a contract (e.g. losses on investments or other contracts, fines and penalties, and entertainment

expenses).

B. Preferences in Other Jurisdictions

In the United States, rules-based standards have been promulgated based on principles and are more

typically applied in accounting and procurement through the use of US GAAP accounting standards and

the Federal Acquisition Regulation. This approach is generally favored in more litigious environments, as

deviations from the rules are more easily enforced. In the UK and Australia however, principles-based

standards have been developed with accompanying guidance that provide interpretations that can be

viewed to some extent as rules. With regards to procurement and generating contracts, additional

emphasis is applied to innovation and value for money, as the establishment of general principles enables

creativity and develops a better working relationship with third party contractors on future engagements.

C. Implications

In the context of negotiating contracts, the implications for the use of rules-based versus principles-based

accounting standards depend on the expectations and outcomes to be achieved from the contract. For

example, if a contract is negotiated based on a set of rules to determine what costs are allowable and if

198 | Page Public Services and Procurement Canada September 30, 2019

the contractor is expecting to follow routine processes for standard work that need to be followed, and

require minimal innovation, then a rules-based approach may be appropriate because of its ability to

generate consistency of practice and its ease in implementation and managing over the life of the contract.

It also facilitates subsequent compliance audits that Canada may conduct.

Conversely, if a contract is being established for a new, complex good/service, the application of general

principles may be more appropriate to negotiate a cost based contract. This would enable more innovation

and creative approaches to the procurement to achieve Canada’s objectives, outcomes and maximize

value. It can also result in more effective relationships and collaboration with contractors to develop

innovative approaches to delivering the goods or services required. Particularly for large and complex

non-competitive contracts (often in Defence), the objective is to obtain maximum value for Canadians.

Within a confined, rules-based contract, there is little room for deviation from the standard. If Canada’s

strategic objectives and outcomes for a procurement require a solution that is not a readily available good

or service, the contracting officer, the customer and the contractor must jointly negotiate a contract that

reflects the nature of the solution being sought as well as the distribution of risks and benefits.

Under a principles-based approach, the stakeholders are not as confined to specific requirements and

may need to develop a contract that may require a stage-gate process. The assessment of costs that are

acceptable under the contract should be straight forward, as long as the costs, which are included under

either a rules or principles based contract, are clearly described in the contract. For large complex

procurements, which may require a stage-gate process, this will require contract amendments to provide

clarity on the type and amount of cost to be included as each gate is achieved. Ultimately, this will help to

achieve better outcomes for Canada’s revised pricing framework.

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ANNEX 5.1.3 (DISCUSSION PAPER - ACCRUAL VS. CASH BASED ACCOUNTING)

Accrual versus Cash Based Accounting

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a

competitive process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations

and manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this

requires considerable support from the contracting team, which may include price advisors, client

department representatives and other subject matter experts. This discussion paper is not intended to be

a procedural document.

Why This Matters?

Misunderstandings between the concepts and application of accrual and cash based accounting can have

a negative impact on understanding and determining contract costs. As a result, users should be aware

of the key differences between the two methods and instances and the potential impact of each in

establishing and managing a contract. This knowledge will support more consistent understanding and

basis to estimate contract costs in support of further value to Canada.

Recommendation

The recommended approach for Canada is to follow accrual accounting as the basis for measuring cost

when establishing non-competitive government contracts. The accrual method for measuring cost

estimates and actual costs would generally be appropriate for most cost types where the amount can be

estimated and there is a sufficient level of certainty of occurrence. For example, the amount of direct

labour costs to be included in a contract can be based on the estimates calculated by the contractor as

part of their accounting records that typically follow accrual method as labour payments are accrued as of

period end and paid shortly thereafter.

The cash method may provide better value to Canada for cost types where the amount cannot be

accurately estimated and/or there is insufficient level of evidence for occurrence. The use of the cash

method would likely be unusual and used rarely. In the event that the cash method is selected the amount

of the cost would only be known with certainty at the time of payment. Examples include, but are not

limited to, warranty or severance payments. In these examples, the contracting officer may choose to

include terms and conditions in the contract that state that while the cost may be acceptable (if it meets

all of the other acceptability criteria) the amount will be determined in the future when the warranty costs

or severance payments are actually disbursed.

The following decision tree illustrates the recommendation.

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Exhibit 1 – Accrual vs Cash Method.

Analysis

A. Accrual versus Cash Accounting

Accrual accounting records events in the period in which they are incurred (incurred cost) whereas cash

accounting records the events only when cash is received/paid. Under the accrual method, the matching

principle is followed to recognize revenues in the same period as the expenses that were incurred to earn

those revenues. With the cash method, only the receipt or payment of cash triggers the recognition of a

transaction which can create timing differences when these transactions are recorded compared to the

accrual method, i.e. expenses may be recorded in an earlier period than when revenues are recorded due

to the difference in timing of the actual payment of expenses and receipt of revenues.

It is important to recognize that all Canadian government departments and agencies follow accrual

accounting as required for financial reporting purposes (i.e. Public Accounts). This is consistent with other

governments used as comparators, including the United States, United Kingdom, and Australia.

B. Application to Government Contracts

Cash and accrual accounting have pros and cons to consider. The following summary is based on an

Australian Government website and has been edited to be more relevant to the context of this discussion

paper.

Cash vs. Accrual Accounting, Australia Government – Department of Industry, Innovation and Science, May 2016.

201 | Page Public Services and Procurement Canada September 30, 2019

Cash accounting:

 is a simple system that keeps track of a contractor’s cash flow;

 is generally suited to smaller contractors that mostly handle transactions in cash;

 presents a picture of how much money the contractor has on hand and in its’ bank accounts; and

 does not capture money that is owed from, or to, others.

Accrual accounting:

 is more complicated than cash accounting;

 is better suited to contractors that don't get paid for some period of time after provision of goods

or services;

 is a system that accounts and reports a truer financial position at a point in time, as it captures

money that is owed from, and to others; and

 is helpful when dealing with many contracts and large dollar amounts.

Most if not all contractors in Canada and abroad use accrual accounting. Similarly federal government

departments and agencies in Canada and similar organizations in other countries follow accrual

accounting to present a more accurate financial position at any point in time.

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ANNEX 5.1.4 (DISCUSSION PAPER - SALES AND MARKETING)

Sales and Marketing

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a

competitive process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations

and manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this

requires considerable support from the contracting team, which may include price advisors, client

department representatives and other subject matter experts. This discussion paper is not intended to be

a procedural document.

Why This Matters?

Sales and marketing costs are primarily incurred by contractors to generate future sales of their goods or

services. Assessing if sales and marketing costs are acceptable for a Government contract is difficult

because:

 there are many types of sales and marketing activities;

 the benefits of sales and marketing costs for a contract are not always evident/measureable;

 the inclusion of sales and marketing costs may be perceived as a conflict of interest in the relationship,

between the Government and the contractor;

 the inclusion of sales and marketing costs in a contract may be viewed as an unfair subsidy; and

 there are many factors to consider when determining the amount of sales and marketing costs to

include in a contract.

Clear guidance is required to help ensure that sales and marketing costs are only included in the contract

cost base if they are Attributable, Appropriate, and Reasonable.

Recommendation

In alignment with the contract cost Acceptability criteria outlined in the Costing Standard, sales and

marketing costs should be accepted for a contract when the costs are Attributable, Appropriate, and

Reasonable.

When assessing the criterion of Attributable, below are some key factors to consider.

 Are the sales and marketing costs supportable and verifiable?

 Generally not attributable unless the sales and marketing costs contribute to the achievement of:

 contract specific requirements;

 strategic contract outcomes; or

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 financial benefits for the contracts that the Government has with the respective contractor?

When assessing the criterion of Appropriate, below are some key factors to consider.

 Are the respective sales and marketing activities ethical based on applicable Government policies and

regulations?

 Are the nature of the sales and marketing costs consistent with available sources of comparator

information?

 Is the reimbursement of the sales and marketing costs, as it pertains to the impact on fairness and

equity for other suppliers, acceptable?

When assessing the criterion of Reasonable, below are some key factors to consider.

 Does the cost amount justify the expected return on benefits for the Government?

 Is the cost amount consistent with available sources of comparator information?

 Is the cost amount net of applicable credits?

 Does the cost amount comply with any parameters that may have been pre-authorized in the contract?

 Has the cost amount been allocated fairly between the Government and the contractor with

consideration for the benefits associated with the costs?

The above factors are presented in the logical order that contracting officers will need to follow when

assessing the acceptability of sales and marketing costs. It should be noted that the identified factors for

assessing the criteria of Attributable, Appropriate, and Reasonable are not exhaustive. As such, the

identified factors should be consulted alongside the applicable sections of the Costing Standard.

Analysis

A. Types of Sales and Marketing Activities

For this discussion paper, the scope of sales and marketing primarily relates to the following activities:

Selling. Selling is a generic term encompassing all efforts to market the contractor’s goods or services.

Selling includes advertising, corporate image enhancement, bid and proposal efforts, marketing planning,

and direct selling.

Advertising. Advertising means the use of media to promote the sale of goods or services. Advertising

media include but are not limited to conventions, exhibits, free goods, samples, magazines, newspapers,

trade papers, direct mail, dealer cards, window displays, outdoor advertising, radio, television, and the

Internet. A relevant example is a trade exhibition, which is an exhibition organized so that companies in a

specific industry can showcase and demonstrate their latest goods and services.

Public Relations. Public relations means all functions and activities dedicated to maintaining, protecting,

and enhancing the image of a concern or its goods or maintaining or promoting reciprocal understanding

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and favourable relations with the public at large, or any segment of the public. The term public relations

includes activities associated with areas such as advertising, customer relations, etc.

Entertainment. Entertainment includes amusement, diversions, social activities, tickets to show or sports

events, meals, lodging, rentals, transportation and gratuities. It also includes membership in social, dining,

or country clubs or other organizations having similar purposes.

B. Assessing the Acceptability of Sales and Marketing Costs

Overarching Considerations for Assessing the Acceptability of Sales and Marketing Costs

It should be noted that sales and marketing costs may be an aggregate of other costs (e.g. compensation

costs, travel costs, etc.). Therefore, when assessing the acceptability of sales and marketing costs, the

criteria of Attributable, Appropriate, and Reasonable should also be assessed for the respective aggregate

costs. Applicable discussion papers and cost specific considerations from the Costing Standard should

be consulted as required.

Assessing the Attributable Criterion

Sales and marketing costs are generally not attributable unless the costs:

 are supportable and verifiable; and

 contribute to the achievement of contract specific requirements;

 strategic contract outcomes; or

 financial benefits for the contracts that the Government has with the respective contractor.

Supportable and Verifiable

Sales and marketing costs should be readily identifiable based on contract cost reports produced by the

contractor.

The contract cost reports should:

 disclose the nature and purpose of the sales and marketing costs;

 identify direct sales and marketing costs; and

 identify indirect sales and marketing costs.

Disclosed information should include the type of sales and marketing activities, the sales and marketing

cost breakdown (e.g. compensation costs, travel costs, etc.), and how the costs contribute to the

achievement of benefits for the contract.

Achievement of Contract Specific Requirements

There are situations in which advertising, public relations, and bid/proposal development costs can

contribute to the achievement of contract specific requirements. Brief examples of when these types of

sales and marketing costs may be Attributable are provided below.

Advertising Costs. The client department may require service (i.e. maintenance) support under a

contract, where it expects the contractor to be the conduit between potential maintainers and the customer.

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To fulfil the maintenance component of the contract, the contractor may need to incur advertising costs to

solicit services from maintenance sub-contractors.

Public Relations Costs. The client department may require the contractor to communicate with the public

or media about specific issues related to the contract in question. Logically, the contractor would incur

public relations costs to conduct the required communication activities.

Bid/Proposal Development Costs. Bid/proposal development costs, may be incurred by the contractor

during the course of a non-competitive contract when the Government requires the contractor to submit a

proposal, with technical and cost information, to extend the length of the existing contract (i.e. through the

activation of an option term).

Achievement of Strategic Contract Outcomes

In alignment with the Treasury Board Secretariat Contracting Policy

, contracts may be structured with

due consideration of strategic outcomes that:

 support long-term industrial and regional development and other appropriate national objectives,

including aboriginal economic development; and

 comply with the government's obligations under the North American Free Trade Agreement, the World

Trade Organization – Agreement on Government Procurement and the Agreement on Internal Trade.

In exceptional circumstances, sales and marketing costs may be Attributable when the respective contract

includes such outcomes.

As an example, contracts structured under the Industrial and Technological Benefits (ITB) Policy must

 support the long-term sustainability and growth of Canada’s defence sector;

 support the growth of prime contractors as well as suppliers in Canada, including small and medium-

sized enterprises (SMEs) in all regions of the country;

 enhance innovation through research and technological development in Canada; and

 increase the export potential of Canadian-based firms.

To fulfil the above objectives, specifically the second and fourth objectives, the contractor may need to

make certain investments in other suppliers. This could require sales and marketing costs (e.g. promoting

goods and services at tradeshows; or advertising to solicit services and goods, investment opportunities,

or employment from other defence companies).

It should be noted that the ITB Policy is complex, as it allows for contractors to either incur direct or indirect

costs for achieving the above objectives. Furthermore, the policy allows contractors to incur relevant costs

before the timelines of an individual procurement as well as pool costs and allocate them to multiple

contracts.

Contracting Policy. Government of Canada, Treasury Board Secretariat of Canada. October 2013. https://www.tbs-sct.gc.ca/pol/doc-eng.aspx?id=14494.

Accessed 1 March 2018.

ITB Policy: Value Proposition Guide. Government of Canada, Innovation, Science and Economic Development Canada, Office of the Deputy Minister,

Industry Sector, 19 December 2014, www.ic.gc.ca/eic/site/086.nsf/eng/00006.html, Accessed 26 October 2017.

206 | Page Public Services and Procurement Canada September 30, 2019

Due to the strategic nature and complexity of policies, such as the ITB Policy, the respective Government

policy owners (e.g. Innovation, Science and Economic Development Canada) should be consulted when

the acceptability of policy related costs are assessed. Special reviews and approvals are also be required

here.

In order for these strategic sales and marketing costs to be considered for acceptance, the following

conditions should be in place:

 A cost benefit providing details on the expected costs in comparison to details on the expected benefits

to be realized within the contract. The strategic benefit should be clear, as should the cost of the

strategic benefit, with an explanation as to why it is attributable to the contract. All details should be

supportable, verifiable and well documented.

 A timeline for the realization of the strategic benefit to Canada, as well as detailed parameters on when

the achievement of these benefits will be verified. This would include established check-points to

validate whether or not the benefits are being achieved. In the event the strategic benefits are not

occurring, the parameters and contract should outline that the sales and marketing costs will no longer

be accepted or will require adjustment.

 The acceptance of the sales and marketing costs, the parameters and the timelines all require

documentation in the contract or the Cost Accounting Practices Submission (CAPS).

Achievement of Financial Benefits for the Contracts that the Government has with the Respective

Contractor

In exceptional circumstances, sales and marketing activities could allow contractors to expand their

customer base and correspondingly increase their production volume. Increased production volume can

potentially lead to reduced costs being allocated to each good produced by the contractor. Resultantly,

this could create potential cost savings for the Government across the contract(s) it has with the respective

contractor.

Consider the following example:

A supplier has been contracted by the Government to produce goods. During the course of the contract,

the Government and contractor have determined that sales and marketing costs may be Attributable

because the successful sales of these goods to other customers could provide financial benefits to the

contracts that the Government has (or will have) with the respective contractor. Essentially, the contractor

would experience increased production volume, and potentially increased production efficiency, thereby

reducing its total cost incurred per good.

In order for these costs to be considered for acceptance, the following conditions should be in place:

 The contractor would have to provide a cost benefit analysis to support the claim that the marketing

costs were of benefit to Canada. This would include details of the expected costs required to obtain

the additional customer with a comparison to the calculation of the expected decrease in production

costs to be realized in the contract with Canada. This evidence should be supportable, verifiable and

well documented.

 A timeline for the realization of the cost savings benefit to Canada, as well as detailed parameters on

when the savings will be verified. This would include established check-points to validate whether or

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not the cost savings are being achieved. In the event the savings are not occurring, the parameters

and contract should outline that the sales and marketing costs will no longer be accepted or will require

adjustment.

 The acceptance of the sales and marketing costs, the parameters and the timelines all require

documentation in the contract or the Cost Accounting Practices Submission (CAPS).

Assessing the Appropriate Criterion

Sales and marketing costs may be Appropriate for a contract when:

 the respective sales and marketing activities are ethical based on applicable Government policies and

regulations;

 the nature of the costs are consistent with comparator information; and

 the reimbursement of the costs, as it pertains to the impact on fairness for other suppliers, is

acceptable.

Ethical Considerations based on Applicable Government Policies and Regulations

Sales and marketing costs would not be Appropriate if the incurrence of such costs are unethical based

on applicable Government policies and regulations. One important Government policy to consider here is

the Values and Ethics Code for the Public Sector

. Based on this policy, the key factor to consider is

whether the nature of the sales and marketing costs maintain the perception of independence, in the

relationship, between the Government and the contractor, and are not perceived as a conflict of interest.

The perception of independence should be assessed from the lens of the Canadian taxpayer.

As an example, entertainment costs, such as costs associated with attending a sporting event, would be

perceived as a conflict of interest in the relationship, between the Government and the contractor, and

would correspondingly not be considered Appropriate or Acceptable.

Consistency of the Nature of Sales and Marketing Costs with Comparator Information

The nature of sales and marketing costs should be consistent with comparator information, if available.

Sources of comparator information include but are not limited to:

 internally available data for other contracts;

 accessible data for contracts from other government procurement organizations;

 accessible documentation, including historical and forward-looking financial reports, for the contractor;

 publically available financial reports for other companies in the contractor’s industry; or

 publically available financial reports for other companies in the contractor’s geography.

Value and Ethics Code for the Public Sector. Government of Canada, Treasury Board Secretariat of Canada. December 2011. http://www.tbs-

sct.gc.ca/pol/doc-eng.aspx?id=25049. Accessed 1 March 2018.

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Consider the below scenario for illustrative purposes only.

In the Assessing the Attributable Criterion section of the Analysis, it was assessed that the incurrence of

advertising costs, to solicit services from maintenance sub-contractors, may be Attributable.

Also, as per the Different Types of Sales and Marketing Activities section of the Analysis, forms of

advertising may include but are not limited to conventions, exhibits, free goods, samples, magazines,

newspapers, trade papers, direct mail, dealer cards, window displays, outdoor advertising, radio,

television, and the Internet.

Assume it is assessed that radio or television forms of advertising would not typically be used to solicit

services from maintenance sub-contractors. Furthermore, assume it is assessed that online advertising is

the typical channel for soliciting services from maintenance sub-contractors.

For the above scenario, logically, the sales and marketing costs related to radio or television advertising

would not be Appropriate, whereas online advertising costs could be Appropriate.

Impact on Fairness for other Suppliers

Consideration should be provided to whether the inclusion of sales and marketing costs for a contract

would improve the competitive position (i.e. through increased customer revenues and decreased

production costs) of the respective contractor within its region or industry. This may occur when the intent

of the sales and marketing costs is to decrease the production costs of the contracted goods by increasing

the customer base and correspondingly production volume of the contractor. For such a circumstance,

the contracting officer should, with proper consultation

, assess the following.

 Is the inclusion of the sales and marketing costs in the contract due to the contract’s integration with

other Government of Canada mechanisms or programs (i.e. for the purpose of achieving strategic

outcomes)?

 Would the inclusion of the sales and marketing costs be viewed as a fair subsidy to the contractor or

the contractor’s region or industry

Clear documentation of the cost savings or strategic benefit to Canada, as well as the plan for validation

and monitoring of this benefit, in the CAPS or the Contract is required to demonstrate the fairness of the

decision.

Assessing the Reasonable Criterion

When assessing what constitutes a Reasonable amount for Attributable and Appropriate sales and

marketing costs, factors including, but not limited to the below should be considered.

 Does the cost amount justify the expected return on benefits for the Government?

 Is the cost amount consistent with comparator information?

The contracting officer may be required to consult internal or external expertise.

The perception of an unfair subsidy could result in a legal challenge and/or harm to Canada’s reputation internationally.

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 Is the cost amount net of applicable credits?

 Does the cost amount comply with any limits that may have been pre-authorized in the contract?

 Has the cost amount been allocated fairly between the Government and the contractor with

consideration for the benefits associated with the costs?

Comparing the Cost Amount to Expected Return on Benefits

It should be clearly demonstrated that the amount of sales and marketing costs incurred by the contractor

justifies the expected return on benefits for the Government. Benefits for the Government can be of either

a quantitative nature (e.g. production cost savings) or qualitative nature (e.g. achievement of strategic

policy outcomes).

When the primary intent of the sales and marketing costs is to reduce production costs for the contracts

that the Government has with the respective contractor, the contractor should demonstrate that the

production cost savings for these contracts is at least equivalent to the respective sales and marketing

costs that have been incurred. This cost benefit analysis and the agreed parameters of the agreement,

including validation and time periods should be documented and noted in the contract or CAPS, as

detailed above in the Assessing the Attributable Criterion section.

When the incurrence of sales and marketing costs are linked to the achievement of strategic outcomes, a

cost-benefit analysis could be or could have been conducted in order to determine the level of costs to

the Government that would justify the achievement of the respective benefits.

This cost benefit analysis

and the agreed parameters of the agreement, including validation and time periods should be documented

and noted in the contract or CAPS.

Consistency of the Amount of Sales and Marketing Costs with Comparator Information

The amount for and sales and marketing costs should be consistent with available comparator information.

Potential sources of comparator information are identified in the Assessing the Appropriate Criterion

section of the Analysis.

For example, the amount for and sales commissions should be informed by industry sales commission

rates.

Adjusting the Cost Amount for Applicable Credits

The amount for Attributable and Appropriate sales and marketing costs should be reported net of

applicable credits. Applicable credits may include Government funding, such as grants or subsidies, the

contractor is receiving to conduct sales and marketing activities to achieve strategic Government

outcomes. When these outcomes are of an identical or similar nature to the outcomes specified in the

respective contract, the amount for sales and marketing costs should be adjusted accordingly. Good

practice would require the contractor to disclose the nature and amount of any funding it is receiving from

the Government.

Compliance of Cost Amount with Pre-Authorized Contract Parameters

This is particularly important when assessing benefits of a qualitative nature.

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A contract may contain limits for the amount of sales and marketing costs that can be reimbursed to the

respective contractor. The inclusion of limits may be of more relevance when the contractor has multiple

active contracts with the Government.

For example, there may be a limit for the percentage of contractor indirect sales and marketing costs that

can be allocated to Government contracts in relation to the total cost of the Government contracts (i.e.

contractor indirect sales and marketing costs can comprise up to X% of the total cost of the contractor’s

Government contracts).

These limits should be documented in the contract or CAPS.

Fairly Allocating Sales and Marketing Costs

Allocation to Contracts

To enable a reasonable and justifiable share of selling and marketing expenses to be charged against

PSPC contracts, the following practice should generally be adopted:

a. Selling and marketing expenses should be clearly identified by a contractor as distinct from other

indirect costs to the extent, where warranted, of creating a separate cost pool for these expenses;

b. Where a contractor manufactures more than one particular product or provides more than one

particular service, the selling and marketing expenses specifically identifiable with each particular

product or service should be allocated directly thereto with any general expenses being prorated

equitably across all products or services; and then

c. A pro-rata share of the selling and marketing expenses allocated in accordance with b) above to the

particular products or services or family of products or services being acquired under the PSPC

contract included in the applicable overhead costs of the contract.

One specific consideration for the fair allocation of sales and marketing costs is that these costs can

provide future benefits to both the Government and the contractor. As previously identified, the benefits

for the Government can be of either a quantitative or qualitative nature.

When the primary intent of sales and marketing costs is to reduce contractor production costs, the

Government will potentially benefit from reduced contract costs and the contractor will potentially benefit

from increased sales and reduced costs. As such, the sales and marketing costs could be allocated

between the contractor’s Government contract(s) and non-Government business activities in proportion

to amount of financial benefits that are expected to be realized by the contractor and the Government’s

contract(s).

Furthermore, costs could also be allocated over the period of time that would be expected

for the benefits to be realized.

When the incurrence of sales and marketing costs are linked to the achievement of strategic outcomes,

the results of a cost-benefit analysis would inform the fair allocation of these costs between the contractor’s

Government contract(s) and non-Government business activities.

The ratio of the contractor’s Government revenues to its total revenues can help inform a fair allocation.

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ANNEX 5.1.5 (DISCUSSION PAPER - EXECUTIVE COMPENSATION AND BONUS)

Executive Compensation and Bonus

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a

competitive process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations

and manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this

requires considerable support from the contracting team, which may include price advisors, client

department representatives and other subject matter experts. This discussion paper is not intended to be

a procedural document.

Why This Matters?

As the types and dollar amounts of executive and employee compensation and bonus vary widely among

contractors and if contracts do not explicitly outline which executive compensation and bonus costs are

allowable and at what amount, there is a risk that Canada will overpay for the goods and services obtained.

Additionally, while some of these costs may be clearly identified as direct, they are typically included as

indirect costs and can represent a high proportion of these costs. With a more robust consideration and

treatment of executive compensation and bonus costs, resulting contracts will have further clarity of the

acceptability of these costs to help ensure value for Canada.

Clear guidance is required to help ensure that executive compensation and bonus costs are only included

in the contract cost base if they are Attributable, Appropriate, and Reasonable.

The current approach in Canada, as stated in the Contract Cost Principles is guided by the General

Principle 1031-2 01. “The total cost of the Contract must be the sum of the applicable direct and indirect

costs which are, or must be reasonably and properly incurred and/or allocated, in the performance of the

Contract, less any applicable credits. These costs must be determined in accordance with the Contractor's

cost accounting practices as accepted by Canada and applied consistently over time.”

Section 1031-2 07 states “unreasonable compensation for officers and employees” are considered non-

applicable costs to the contract. As a result, the current approach requires the contracting officer to

determine the reasonability of executive compensation and bonuses.

Recommendation

In alignment with the contract cost Acceptability criteria outlined in the Costing Standard, executive

compensation and bonus costs should be accepted for a contract when the costs are Attributable,

Appropriate, and Reasonable.

When assessing the criterion of Attributable, some key factors that should be considered include:

 Are the executive compensation or bonus costs supportable and verifiable?

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 Are the executive compensation or bonus costs required/beneficial for the performance of the

contract?

When assessing the criterion of Appropriate, some key factors that should be considered include:

 Are the costs in accordance with the contractor’s internal compensation policy which are applied when

establishing contracts in the regular course of business?

 Is the inclusion of the executive compensation or bonus consistent with benchmark and/or industry

norms?

 Is the bonus in line with specific guidance Incentive Remuneration Bonus plans?

When assessing the criterion of Reasonable, some key factors that should be considered include:

 What proportion does executive compensation or bonus represent? E.g. proportion of: total cost of

contract, total executive compensation paid by contractor, total or bonus paid by the contractor. Is this

proportion consistent with benchmarks and/or industry norms?

It should be noted that the above factors for assessing the criteria of Attributable, Appropriate, and

Reasonable are not exhaustive. The above factors should be consulted alongside the applicable sections

of the Costing Standard.

 Has the cost amount been allocated fairly between the Government and the contractor with

consideration for the benefits associated with the costs?

The above factors are presented in the logical order that contracting officers will need to follow when

assessing the acceptability of executive compensation and bonus costs. It should be noted that the

identified factors for assessing the criteria of Attributable, Appropriate, and Reasonable are not

exhaustive. As such, the identified factors should be consulted alongside the applicable sections of the

Costing Standard.

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Analysis

A. Executive Compensation and Bonus

Executive compensation includes monetary benefits which are given to the senior management of a

company and form the base pay of the executive, including:

 Salary: reflects the extent of experience and sustained level of performance for a job or position

 Benefit: deals with the provision of time off with pay, employee services, health care services,

allowable insurance protection and retirement incentives

 Performance Incentives: rewards the extent of accomplishment agreement targets.

 Perquisites: a special right or privilege enjoyed as a result of one's position, such as housing

loans; these are in addition to benefits offered to other employees.

Bonus payments are payments made to reward performance. These payments may be based on the

performance of the individual and/or of the company (e.g. amount of profit earned, share price etc.).

An additional consideration when assessing executive compensation, and bonus costs for a contract is

talent management. By incorporating executive and employee rewards, such as, bonuses into allowable

costs within the terms and conditions of the contract, contractors may be better positioned to further

compensate its employees to attract and retain top talent that may also provide value to Canada if the

executive compensation were driven by achieving efficiencies and reducing overall costs of delivering the

goods or services.

For purposes of this discussion paper, consideration is given to help contracting officers determine the

extent to which the following cost types (and related amounts) should be included in a contract:

 executive compensation base pay; and

 bonus payments

Please note profit sharing is a system in which employees and executives receive a direct share of the

profits. A redistribution of profit is not a cost and as such is generally not acceptable as a contract cost.

B. Assessment

Overarching Considerations for Assessing the Acceptability of Executive Compensation and Bonus Costs

It should be noted that executive compensation and bonus costs may be an aggregate of other costs (e.g.

sales and marketing costs, travel costs, etc.). Therefore, when assessing the acceptability of executive

compensation and bonus costs, the criteria of Attributable, Appropriate, and Reasonable should also be

assessed for the respective aggregate costs. Applicable discussion papers and cost specific

considerations from the Costing Standard should be consulted as required.

The contracting officer needs to exercise professional judgement in assessing the extent to which

executive compensation and bonus is Attributable, Appropriate, and Reasonable and may need to engage

additional support as needed from price advisors and possibly other subject matter experts

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Assessing the Attributable Criterion

Executive compensation and bonus costs may be Attributable when the costs:

 are supportable and verifiable; and

 are required for the performance of the contract.

Supportable and Verifiable

Executive compensation and bonus costs should be readily identifiable based on supported and verifiable

evidence that may include contract cost reports or similar information produced by the contractor.

The information from the contractor should:

 describe the nature and purpose of the executive compensation and bonus costs;

 identify direct executive compensation and bonus costs; and

 identify indirect executive compensation and bonus costs.

Disclosed information should include the type of executive input, i.e. direct or indirect, to the contract delivery,

the executive compensation cost breakdown (e.g. base pay, bonus pay, etc.).

Required for Performance of the Contract

The question whether executive compensation costs are required for the performance of the contract and if

they are direct or indirect cost must be addressed. Direct involvement of executive would result in their

compensation being directly attributed to the contract. If executive involvement is not direct, executive

compensation may be included in indirect costs or overhead. The extent to which executive compensation is

included in indirect costs or overhead and allocated to the contract should be assessed by the contracting

officer with support as needed from the contracting team (e.g. price advisor, or other subject matter

specialist).

As noted in the supportable and verifiable criteria, disclosed information should demonstrate how the

executive compensation and bonus costs contribute to the achievement of the contract either directly or

indirectly.

Assessing the Appropriate Criterion

Executive compensation and bonus costs may be Appropriate for a contract when the costs:

 are in accordance with the contractor’s internal compensation policy which are applied when

establishing contracts in the regular course of business; and

 are consistent with benchmarks or industry norms.

 are in line with specific guidance of Incentive Remuneration Bonus plans (see below)

Regular Course of Business

To assess the extent to which contractors include executive compensation and bonus in their regular course

of business, the contracting officer should verify the contractor’s current policy, as well as the timing of the

policy, to ensure it was in place well in advance of contract negotiations to mitigate the risk of contractor

policy manipulation.

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For example, the company’s general salary policy should be reviewed to ascertain the compensation is

uniformly paid according to the set criteria.

If the contracting officer can align the needs for the contract with the compensation costs that the contractor

typically provides, they could be considered an appropriate cost to Canada. It is expected that all other

contracts engaged in by the contractor would also follow similar compensation terms for executives as they

have been established through the regular course of business. Additional data may be available to the

contracting officer to demonstrate Canada’s experience with the contractor that may help determine the

extent to which these costs are typically included or not.

Benchmarks and/or Industry Norms

Benchmarks or industry norms can provide useful comparators by which a contracting officer and team can

assess the appropriateness of executive compensation and bonus costs. Data can be obtained from a variety

of sources including Statistics Canada, third party data providers and current and past contracts negotiated

by Canada. Contract officers and team should consider where the best sources of information can be

obtained from to assess the appropriateness of the executive compensation and bonus costs proposed by

the contractor. It is also important to note that regional norms for compensation may differ even in the same

industry which can affect comparability of data (i.e. significant difference in what an executive is paid in

Toronto vs. Edmonton in the same industry).

Incentive Remuneration Bonus Plans

Incentive remuneration bonus plans are designed to link the performance of employees to the achievement

or organization objective.

The following specific criteria must be met in order for the costs to be Appropriate:

- the plan includes a documented sharing arrangement, with all employees, and the incentive amounts

payable by the employer must be computed with reference to earned profits;

- the company pays employees directly or provides the funds for the employees plan to trustee in

trust for the benefit of the employees who are members of the plan;

- the amount of cost will not exceed the amount of payment made to the employees or the plan trustee;

- the cost is recognized only in the year the employee provides services to earn benefits under the

plan;

- the entire amount recognized as cost must be disbursed to employees in the fiscal year when the

benefits were earned or shortly after the end of the fiscal year (within a few months, but well before

the end of the fiscal year following the one for which plan benefits were based);

- any funds payable by the trustee to the employer for over contributions or funds that the plan may

earn shall be used to reduce the current year cost unless these funds or over contributions are paid

directly by the employer to the employees within that current fiscal year; or

- Compensation to owners of closely held corporations, partners, sole proprietors, or members of their

immediate families should be in accordance with the personal service rendered rather than a

distribution of profits.

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Assessing the Reasonable Criterion

Proportion

The reasonability of the executive compensation and bonus can be assessed based on the proportion of cost

represented compared to the total cost of the contract. In order to refine the determination of reasonable

proportions when assigning executive compensation and bonus costs to the contract, it may be beneficial for

Canada to apply a specific percentage depending on the type of good or service. For example, for a complex

project, based on Canada’s experience and supported by data from other PSPC contracts, it may be

appropriate that the maximum executive compensation and bonus costs represent x% of the total project

costs. Therefore, executive compensation and bonus costs exceeding any established threshold would not

be considered reasonable.

The use of percentages allows for adaptability with the size and requirements of the project. The use of

comparator data is a key element of Canada’s pricing framework and should include information from the

contracts negotiated by Canada. This will provide a source of useful benchmarks for the contracting team to

use.

Additional considerations for determining the reasonability of executive compensation include:

- compensation paid to executives in similar positions, compared to related executive pay scales

surveys;

- the executive's previous experience, experience in other positions within the company and similar

appointments in other companies;

- comparison of the compensation paid for the nature and scope of the work, or service, as defined

in the contract of service and/or the position description;

- the size and complexity and the corporate management structure;

- the company's general salary policy should be reviewed to ascertain the compensation is

uniformly paid, according to set criteria;

- in the case of smaller contractors with a limited number of officers, the amount of compensation

paid to executives in the previous year should be reviewed, as a substantial increase over the

prior year tends to indicate compensation may be excessive, further investigation should be made

to determine whether the executives' salaries are for services rendered, rather than a re-

distribution of the business's profits;

- the compensation paid to executives through related party transactions.

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ANNEX 5.1.6 (DISCUSSION PAPER - CONTRACT INCENTIVES TO ENCOURAGE AND

REWARD ENHANCED VALUE TO CANADA)

Contract Incentives to Encourage and Reward Enhanced Value to Canada

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a competitive

process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations and

manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this requires

considerable support from the contracting team, which may include price advisors, client department

representatives and other subject matter experts. This discussion paper is not intended to be a procedural

document.

This paper explores the following topics:

 considerations for the use, design, and administration of contract incentives;

 potential financial incentives, including respective benefits, drawbacks, and considerations; and

 potential non-financial incentives, including respective benefits, drawbacks, and considerations.

Incentive work in tandem with the various contract management measures, which are described respectively

in Annex 5.1.7 (Discussion Paper - Measures to Manage Contractor Non-Compliance or Unacceptable

Behaviour)

It is important to remember that incentives do not replace sound price setting and relationship management

practices, which are described respectively in Discussion Papers: Alternative Approaches to Cost-Based

Pricing, Profit Premiums, Pricing Risk, and Profit to Sustain Contractor Interest (to be released in the future)

and in Annex 5.1.8 (Discussion Paper: Managing Long-Term Contractual Relationships).

Why This Matters?

Incentives can encourage and reward superior contractor performance which exceeds the base goods and

services established in the statement of requirements. Incentives are the backbone of performance-based

contracting, as the contractor is rewarded based on the achievement of certain performance objectives that,

in theory, are linked to contract outcomes. These performance objectives are generally above and beyond

the minimum criteria established in the contract statement of work. Indicators used to evaluate performance

objectives may include technical (e.g. quality, safety, innovation), schedule, cost and other measures.

Incentives can be of a financial or non-financial nature. The intent is to design incentive mechanisms that

motivate the contractor and enhance value to Canada, supplementing the incentive inherently provided by

the underlying basis of payment.

However, in a contract, the linkages between incentives, performance objectives, and contract outcomes are

not always effective and verifiable for the following reasons:

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 the use of incentives may not always be appropriate or effective;

 designing and administering appropriate and effective incentives, including corresponding

performance objectives, can be complex; and

 there are several different types of financial and non-financial incentives (each with their own

respective benefits, drawbacks, and considerations) that can be used in a contract.

When incentives are inappropriately selected, designed, and administered, the result can have unintended

consequences and ultimately lead to suboptimal contractor performance. As such, clear guidance regarding

the use of incentives is required to help ensure appropriate incentives are structured and administered to

provide value to Canada.

Recommendation

Incentives should be used to reward superior contract performance which exceeds the base standards

established in the statement of requirements. The use of incentives may not be appropriate or effective for

all contracts, particularly when:

 the contractor is already receiving a fair profit on the contract;

 the contractor will achieve the target performance criteria without an incentive;

 the contractor will not be motivated, by the incentive(s), to achieve the target performance criteria;

 there is no, or minimal, value to Canada for performance beyond the base standards established in

the statement of requirements.

When the use of incentives is determined to be appropriate, they should be designed and administered such

that:

 the corresponding performance objectives are balanced and linked to contract outcomes;

 the contractor has control over the performance objectives to which the incentives are linked ;

 the achievement of the performance objectives can be measured and verified;

 the process by which the incentive is awarded, and the incentive amount, are reasonable, and

align with government policy and regulations; and

 the benefits of the contract outcomes exceed the combined cost of the incentives and the cost of

administering the incentives.

A combination of financial and non-financial incentives can be used in the same contract to complement each

other. Ultimately, selection of the ‘right’ incentive(s) can drive cost-effective, high-quality, and timely

outcomes in performance-based contracts.

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Analysis

A. Considerations for the Use, Design, and Administration of Contract Incentives

Assessing the Appropriateness and Effectiveness of Including Incentives in a Contract

Exhibit 1 briefly describes the factors that should be assessed when determining the appropriateness and

effectiveness of using incentives in a contract.

Table 8

Factors

Example Criteria to Assess (Not Exhaustive)

Is the contractor already

receiving a fair profit on the

contract?

If the contractor is earning a profit premium as a component of the

profit, how would the profit premium interact with any other incentive

provisions within the contract?

Refer to Discussion Paper: Profit Premiums, and Profit to Sustain

Contractor Interest (to be released in the future) for further guidance on

profit determination.

Will the contractor achieve

the target performance

criteria without an

incentive?

Has the contractor typically adhered to, or exceeded, performance

criteria in past contracts?

Is the contractor well known for its expertise and performance in

respect to the contracted activities?

Is the nature of the contract routine or complex (e.g. is the good or

service being procured a commodity or a custom requirement or new

technology)?

Will the contractor be

motivated by the

incentive(s) to achieve the

target performance criteria?

Does the incentive align with the contractor’s strategic goals?

Is the potential impact of the incentive significant enough to motivate

the contractor?

Is there value to Canada for

contractor performance

beyond the minimum

performance criteria?

Will the client department, and/or the Government, benefit from

contractor performance above the base standards established in the

statement of requirements?

The benefits, drawbacks, and considerations of using specific types of financial and non-financial incentives

in a contract are discussed later in this discussion paper.

Considerations for Designing and Administering Contract Incentives

Incentives should be designed and administered such that:

 the corresponding performance objectives are balanced and aligned to contract outcomes;

 the contractor has control over the performance objectives to which the incentives are linked;

 the achievement of the performance objectives can be measured and verified;

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 the process by which the incentive is awarded, and the incentive amount, are reasonable, and align

with government policy and regulations; and

 the benefits of the contract outcomes exceed the combined cost of the incentives and the cost of

administering the incentives.

Designing Aligned and Balanced Performance Objectives

Below are some key considerations for designing balanced performance objectives that are aligned to

contract outcomes.

 All contract outcomes should be traceable to users’ needs and aligned with the client department’s

strategic objectives (e.g., enhancing preparedness in defence, reducing the total cost of ownership).

 All performance objectives should be fully integrated and aligned to motivate contractor performance

of all contract outcomes, avoiding opportunities for the contractor to ‘game the system’ by focusing

on select key performance indicators at the expense of others. For example, the contractor may

compromise a technical indicator, such as quality or safety, in order to achieve a higher assessed

score for schedule and cost indicators. Specific suggestions for mitigating this include:

 making incentive payments conditional upon the achievement of minimum performance

thresholds across all assessed performance indicators;

 appropriately weight the performance indicators to signal the relative importance of each

indicator; and

 evaluating performance based on the achievement of performance objectives that integrate

cost, technical, and schedule indicators.

 Importantly, the performance objectives, and respective target criteria, should encourage innovation

in service delivery and promote a culture of continuous improvement and must not compromise

safety or undermine critical safety processes.

 For long-term, multi-milestone contracts, consideration should be provided for designing and

integrating incentive linked performance objectives, at various contract milestones, based on factors

such as but not limited to:

 the history of contractor performance at prior contract milestones; or

 technological advances in the contractor’s industry (i.e. advances can create new norms for

cost, schedule, and/or technical contract performance).

 The total number of performance indicators should be manageable (a suitable number would be

between three and five key performance indicators).

Designing Attainable Performance Objectives

Below are some key considerations for designing attainable performance objectives.

 The contractor, and to the extent possible its sub-contractors, should have control over achieving the

target criteria for the performance objectives. Clauses should be included in the contract that provide

flexibility for the amendment of the performance objectives and criteria, in the event that the client

221 | Page Public Services and Procurement Canada September 30, 2019

department and/or the Government require changes (e.g. to align with a new policy or a shift in

scope).

 If the scope of the contract, including outcomes, is initially uncertain, incentives and corresponding

performance objectives can be integrated into the contract (via a contract amendment) in later

phases of the contract as the scope becomes more defined.

Designing Measurable and Verifiable Performance Objectives

Below are some key considerations for designing measurable and verifiable performance objectives.

 Performance objectives may be measured by quantitative or qualitative indicators. When qualitative

indicators are used, they should be expressed in clear and descriptive terms, along with clear

expectations on how and who will perform the assessments.

 Establishing accurate target performance criteria for performance objectives can be challenging. For

example, establishing an accurate target cost or schedule in non-competitive contracts may be

difficult if there is limited comparable market data. The challenge is further compounded when the

nature of the contracted activities are complex and atypical. Accordingly, sound methodology, with

appropriate expert advice (i.e. the client department, price advisors, etc.), should be used to develop

and validate contract target cost (and schedule) estimates. Please refer to Discussion Paper:

Techniques to Assess the Acceptability of Contractor Price Proposals for details on how to complete

a ‘Should Cost’ analysis.

 Verification of the contractor completion of performance objectives, which are linked to incentives, is

required as per Section 34 of the Financial Administration Act. To ensure verifiability of performance

objectives, both the contractor and client department should have sound data measurement

capabilities including, but not limited to, the below.

 all data sources/systems should be readily identified (e.g. Accounting Systems or Labour Time

Recording Systems);

 all data elements, required for the indicator to be measured, should be readily available; and

 data stewardship should be a part of the contractor’s and client department’s operational

culture, and well documented processes should be in place to continuously measure and

maintain data quality.

Ensuring Fairness in the Incentive Design and Administrative Process

Below are some key considerations in ensuring fairness in the incentive design and administrative process.

 The magnitude of the incentive reward should be reasonable and clearly understood and agreed

upon by both the Government and the contractor.

 The incentive evaluation process should be understood and agreed upon by both the Government

and the contractor.

 The incentive evaluation process should be free from bias and duplicable.

222 | Page Public Services and Procurement Canada September 30, 2019

 Details about the incentive design and administrative process, including linked performance

objectives, indicators, and criteria, should be clearly documented in the contract terms and

conditions. Related dispute resolution terms should also be included in the contract.

Detailed considerations for ensuring fairness in the incentive design and administrative process are

discussed in Financial Incentives and Non-Financial Incentives sections.

Assessing the Costs and Expected Benefits of Incentives

Administering contracts containing incentives may be costly and/or infeasible from both the perspective of

the Government and the contractor. Certain incentives

may require increased governance and oversight

from the Government. Furthermore, as described previously, the contractor and the Government require

sound data measurement capabilities to monitor and verify contract performance. All of this may be both

difficult and costly.

As such, incentives should be designed so that the anticipated benefits to contract performance outweigh

the costs of administration and the anticipated reward. To better understand, and accordingly realize, the

benefits of different incentives, the Government should at a central level:

 monitor the effectiveness of the incentives;

 review performance objectives, indicators, and criteria regularly for relevance;

 capture lessons learned; and

 maintain a repository of lessons learned that is available for access to all contracting officers.

Benchmarks – Guidance, for Incentive Use, Design, and Administration, in Comparator

Jurisdictions.

From a benchmark perspective, the above recommendations generally align with guidance provided by

comparable jurisdictions such as Australia

, the United States (U.S.)

, and the United Kingdom (U.K)

However, there is one notable difference from guidance provided by the U.S. Federal Acquisition Regulations

(FAR). This difference is in respect to guidance for contracts with multiple incentive arrangements.

Specifically since outstanding results may not be attainable for each of the incentive areas, all multiple

incentive contracts must include a cost incentive, or constraint, that operates to preclude rewarding a

contractor for superior technical performance or schedule results when the cost of those results outweighs

their value to the Government.

Examples of such incentives include award fees or award terms. These incentives are discussed later in this discussion paper.

Factsheet 002 - Performance Measures. Australian Government, Department of Defence, Capability Acquisition and Sustainment Group, PBC Centre of

Excellence. 2016.

United States General Services Administration Federal Government, Federal Acquisition Regulations, 17 August 2007, Accessed 14 August 2017.

Guidance on the Baseline Profit Rate and its Adjustment. SSRO, 15 March 2017.

223 | Page Public Services and Procurement Canada September 30, 2019

Such guidance for contracts with multiple incentive arrangements is not recommended for Canada moving

forward, as it is too prescriptive and increases the complexity of monitoring and evaluating incentives.

B. Financial Contractor Incentives

Financial incentives make use of a monetary reward in order to encourage a contractor to achieve specific

performance objectives. This section describes three types of financial incentives:

1 technical performance incentives;

2 schedule performance incentives; and

3 award fees.

These incentives can be applied on contracts where the underlying basis of payment is cost-based. They are

used widely within Canada, the United Kingdom, the United States, and Australia in both competitive and

non-competitive contracts.

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Technical Performance Incentive

Performance is assessed and an adjustment made to the base payment which is calculated using a variable

scale. The adjustment is generally calculated against discretely measurable performance objectives. As an

example, a technical performance indicator in an aircraft contract could be the speed of the aircraft, in

kilometers/hour. A technical performance incentive could be that for every kilometers/hour above (below) the

target speed, the contractor would receive a financial reward (penalty). Below is an illustrative example

showing how the payment adjustment would be calculated.

Example 1

Consider the below example, to better understand the concepts of technical performance incentive

calculation

A. Contractor’s base payment

$100,000

B. Variable amount (for every 100 km variance from target speed)

$1,000

C. Target speed as per the statement of requirements

5000 km/hr

D. Actual speed for aircraft supplied by contractor

6000 km/hr

E. Payment adjustment (= (D-C)/100 x b or (6000 – 5000)/100 x $1,000)

$10,000

F. Total payment (=A +E or $100,000 + $10,000)

$110,000

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Schedule Performance Incentive

Performance is rewarded, based on the achievement of contract performance objectives, through advanced

or more frequent payments. Note that the total price of the contract remains the same. An example of an

‘incentivized’ contract payment schedule is depicted below.

Example 2

Original Contract Payment

Schedule

‘Incentivized’ Contract

Payment Schedule

Cumulative Increase in

Contractor Cash Flow

Payment 1

$50,000

$100,000

$50,000

Payment 2

$50,000

$300,000

Payment 3

$200,000

$300,000

$400,000

Payment 4

$200,000

$100,000

$300,000*

Payment 5

$200,000

$100,000

$200,000

Payment 6

$300,000

$100,000

Total

Contract

Payment

$1,000,000

* = ($100,000 + $300,000 + $300,000 + $100,000) – ($200,000 + $50,000 + $50,000 +$200,000)

226 | Page Public Services and Procurement Canada September 30, 2019

Award Fees Incentives

Performance is assessed and an additional payment made based on the achievement of specific contract

performance objectives. An award fee is generally only paid if the contractor exceeds pre-established

performance criteria. Award fees may be based on qualitative evaluations, conducted during and/or after the

work is complete. Award fees are frequently used to incentivize performance for project objectives that cannot

be measured quantitatively (e.g. the quality of a consultant report). Below is an illustrative example showing

how the award fee would be calculated.

Example 3

Consider the below example, to better understand the concepts of award feed calculation (basis of payment

is fixed price)

A. Fixed price

$10M

B. Maximum award fee

$1M

C. Actual award fee (based on Canada’s assessment of the

contractor’s performance against the pre-established performance

indicators)

80%

D. Award fee (= b x c or $1M x 80%)

$0.8M

E. Final contract price (= a + d or $10M + $0.8M)

$10.8M

Table 9 - Benefits and Drawbacks

Benefits

Drawbacks

Technical

Performa

nce

Incentive

 Effective for incentivizing

performance for project objectives

that can be objectively measured.

 Appropriate when it would not be

effective for the Government to

share the risk and reward associated

with achieving a performance

objective (e.g., when the

Government receives substantive

benefit from the enhanced

performance and the contractor took

on virtually all risks to achieve the

required outcome).

 May not be effective for incentivizing

performance for objectives that

require professional judgement in

order to assess whether the

performance objective has been

met.

 The formula established for variable

payments may not be fair and can

result in a suboptimal allocation of

risk and reward to incentivize the

contractor to deliver on performance

objectives (e.g. cost efficiency,

technical sufficiency).

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Benefits

Drawbacks

Schedule

Performa

nce

incentive

 The contract payment schedule can

be a powerful determinant of

contractor profitability.

Advanced

or more frequent payments increase

the working capital of the contractor

and correspondingly reduce the

contractor’s debt and costs of

financing.

 Effective for incentivizing

performance from small and

medium-sized contractors who may

not have ready access to capital.

 May not always be applicable, as

this incentive type is subject to

restrictive Treasury Board guidelines

regarding advanced payments.

 A contractor, who has been paid a

substantial amount of the contract

price before the end of the contract,

may not be as motivated to complete

the remaining contract work or to

provide quality work.

Award

fees

 Effective for incentivizing

performance for objectives that are

more subjective requiring

professional judgement to assess.

 May not be effective if the evaluation

process is not understood and

agreed upon by both the

Government and the contractor.

 May not be effective if the evaluation

process does not facilitate a

verifiable and structured evaluation

(i.e. the assessment is not duplicable

and free from bias).

Overarching Considerations for Financial Incentives

Reasonability of Incentive Amount

One consideration for financial incentives is how to assess whether the incentive amount is reasonable. To

determine if an incentive amount is reasonable, considerations such as, but not limited to, the below can be

assessed.

 How much value (e.g. quality, timely, and cost-effective outcomes) above the baseline requirements

specified in the statement of work is being generated for the client department?

 What is the difficulty of achieving the respective performance criteria?

 What incentive amounts have been established on contracts of a comparable nature and scale?

Arnold, Scot A. Defense Department Profit and Contract Finance Policies and Their Effects on Contract and Contractor Performance. Institute for Defense

Analyses, 2009.

Advanced Payments. Supply Manual, Public Service Procurement Canada, 6 June 2015.

228 | Page Public Services and Procurement Canada September 30, 2019

If an incentive type with an offsetting disincentive is being used, the amounts of these offsets should be

reasonable.

Impact on Contractor Profitability

Another consideration for financial incentives is that the incremental impact on the contractor’s profitability

may sometimes not be significant enough to motivate the contractor to achieve the required performance

objectives that the incentives are linked to.

This concern could arise with the following circumstances.

 Regulation may inappropriately constrain the parameter of financial incentives. For example, in the

United Kingdom, the Single Source Regulations Office identifies that incentive adjustments must not

exceed 2% of the price of the respective contract.

Alternatively, a price ceiling for a contract may

be established.

 The achievement of the conditional performance objectives requires disproportionate additional

resources from the contractor. For example, for a contract, where firm price is the basis of payment,

the contractor may assess that to achieve the performance required for the respective incentive, it

would have to incur more costs than the amount of the incentive.

In these situations, the contractor may not be incentivized and instead redirect effort to supporting more

profitable pursuits and or growth initiatives.

C. Non-financial Contract Incentives

Although non-financial contract incentives do not directly impact the profitability of a contractor, they can

contribute substantially to future contractor profitability. As such, they may be an effective supplement, or

alternative, to direct financial incentives. This section describes three types of non-financial incentives:

1 reputation enhancing measures;

2 contract award terms; and

3 contractor employee motivation.

These incentives can be applied with any basis of payment or pricing methods. The first two types of non-

financial incentives are used, within Canada, the United Kingdom, the United States, and Australia, in both

competitive and non-competitive acquisitions.

Reputation Enhancing Measures

Description of Reputation Enhancing Measures

Reputation enhancing measures formally or informally recognize a contractor for strong performance.

Some examples of reputation enhancing measures are:

J. Leotta. Different Incentives in Government Contracting, ICEAA, June 2015.

Guidance on the Baseline Profit Rate and its Adjustment. SSRO, 15 March 2017.

229 | Page Public Services and Procurement Canada September 30, 2019

 testimonials regarding the contractor’s work and the resulting impact on the client department;

 contractor performance recognition programs (e.g. Boeing has an awards program for its

suppliers)

;

 formal performance evaluations (e.g. evaluations forms; or a strategic supplier performance

management program which the United Kingdom uses)

; or

 media coverage that highlights and acknowledges the contractor’s contribution to a successful

outcome.

Benefits of Reputation Enhancing Measures

Benefits, specific to the contractor, include:

 an increased chance of winning future contracts, competitive or non-competitive, particularly when

the potential customer assesses past contractor performance when awarding a contract;

 a potential positive impact on share price for publically traded contractors, when testimonials or good

news stories are made public; and

 a sense of fulfilment, felt by the contractor and its employees, for recognition of a job well done.

Benefits, specific to the Government, include the following.

 Some reputation enhancing measures, such as a contractor performance award program, may also

facilitate indirect competition to perform among contractors, even if the contractors’ respective

contracts are of a non-competitive nature.

 Informal reputation enhancing measures (e.g. testimonials, press coverage) can be a low cost

approach to incentivizing performance.

Key Consideration for Reputation Enhancing Measures

A key consideration for the use of reputation enhancing measures, particularly with those of a more informal

nature, is that the way in which they are ‘administered’ may be perceived as a conflict of interest, particularly

if it appears that the Government is favouring or promoting certain contractors based on the frequency and/or

nature of testimonials or media coverage.

As such, public statements regarding contractors need to comply with all applicable guidance regarding

communications. Essentially, it is important not to present a general endorsement of the contractor, but to

instead speak to the specific work performed and corresponding outcomes achieved by the contractor.

Contract Award Terms

Description of Contract Award Terms

Supplier Recognition. Boeing. http://www.boeingsuppliers.com/awards.html. Accessed October 26, 2017.

Managing Government Suppliers. United Kingdom - National Audit Office. November 2013.

230 | Page Public Services and Procurement Canada September 30, 2019

Contract award terms are granted to a contractor if it achieves the agreed upon performance objectives.

Contract award terms extend the length of an existing contract for an additional period of time, and are a

contractual obligation of the Government if the contractor fulfills the agreed upon performance objectives.

For example, in Australia supplemental award terms are granted for certain performance-based contracts,

conditional on the achievement of cost objectives such as a reduction in the government’s total cost of

ownership.

The use of an award terms as an incentive differs from the more commonly used general option provision

within a contract. When the award term is incorporated as an incentive, the contract must be extended if the

contractor achieves the conditional performance objectives. In contrast for more traditional option terms, the

Government has discretion as to whether it extends the contract regardless of the contractor’s performance.

When establishing contracts with award term incentives, the contracting officer should consider including

clauses that allow it to opt out of a contract extension (i.e. not grant an award term) for appropriate reasons

other than insufficient performance. Appropriate reasons could include, but are not limited, to the following:

 the Government no longer requires the respective goods or services; and

 the Government does not have funds available for the award term period.

Benefits of Contract Award Terms

Arguably, granting supplement contract award terms to incentivize contractor performance could be more

effective than financial incentives, because the potential financial benefits for the contractor could be much

higher.

Moreover, award terms may also build an effective long-term relationship between the Government and a

contractor who is performing well. The establishment of a long-term relationship can yield several benefits

which are discussed in Annex 5.1.8 (Discussion Paper - Managing Long-Term Contractual Relationships).

Ultimately, the use of award terms may be appropriate when acquiring goods and services in capital intense

industries with long development cycles or requiring specialized skills and knowledge.

Drawbacks of Using Contract Award Terms

Award Terms Can Inhibit Competition

One drawback associated with using an award term as an incentive is that it inhibits bid competition (i.e.

other qualified suppliers do not have the opportunity to bid on the respective contract), thereby potentially

reducing the value to Canada in the long run by diminishing the potential for a robust competitive market of

suppliers.

Additionally, from an integrity perspective, in a non-competitive environment, the respective contractor would,

in substance, be awarded the same work package more than once without having to successfully compete

in multiple procurements. This risk is especially material when the contract is lengthy, thus providing a greater

chance for shifts in the respective industry competitive landscape.

As such to mitigate the above drawbacks, research should be conducted, from both a market research and

a regulatory standpoint, to ensure that inclusion of an award term incentive is appropriate and provides value

to Canada. Research could consider the following factors for the respective contract type, scope, and

industry:

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 What competition regulations (e.g. from the Competition Bureau) exist?

 Are there established limits for the length of a contract?

 What is the long-term forecast of qualified suppliers?

Funding may not be Available to Support Award Terms

Another risk with this incentive approach is that the client department’s budgetary outlook may not align with

the funding required to support the award term(s) for the contract in question. This risk is particularly material

for high-dollar value contracts associated with high dollar value complex projects.

Therefore, for contracts of this nature, it is critical that control measures are in place at both the inception of

the contract and during contract management:

 At contract inception, the availability of future funding, for the client department, should be confirmed

and approved through sound costing, budgeting, and investment management processes.

 During contract management, periodic assessments of the contractor performance should be

conducted to assess the probability of the extension of any contract award terms (e.g. periodic cost

reviews if the performance objective is to reduce the Government’s total cost of ownership).

Ultimately, the results of these periodic assessments should be used to inform budget planning

decisions.

Potentially Less Effective when the Contractor holds a Monopoly Position

An additional risk associated with this incentive approach is that a contractor may not be motivated to achieve

the conditional performance objectives of the award terms, for example when the contractor perceives itself

as the only supplier with the capability to provide the required goods or services.

Collaborating with the contractor to develop reasonable contract performance objectives, which are aligned

to both parties’ strategic goals, could help mitigate this risk. When this is not sufficient or practical, to mitigate

the ‘monopoly position’ of the contractor, the contract in question could be scrutinized to determine what

portions of the contract can and cannot feasibly be performed by other suppliers.

Facilitating Contractor Employee Motivation

The incentives discussed thus far have been designed to reward contractor performance from a corporate

lens (e.g., profits, cash flow, contractor reputation, and future business). However, a motivated and engaged,

and ultimately high-performing team of contractor employees, can also be key to achieving contract

performance. Although the Government cannot directly motivate the contractor’s workforce to achieve

contract performance through monetary compensation, it can facilitate employee performance in various

ways.

Linking Employee Bonuses to Contract Key Performance Indicators

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Canada’s current Cost and Profit Policy indicates that performance incentive pay is allowable if it is a

reasonable cost.

From a benchmark perspective, contract costing guidance from Australia, the United

Kingdom, and the United States indicate that compensation costs, including bonuses, are allowable if they

are reasonable.

343536

In Australia, employee bonus pools are an allowable contract cost if the bonus is due

to achievement of key performance indicators set out in the contract, and if the bonus amount is reasonable.

Ultimately the inclusion of employee-linked incentives in a contract could help motivate and retain talented

contractor employees, and, correspondingly, provide increased value to Canada due to improved quality and

commitment to the contract from the contractor workforce.

This recommendation aligns to the guidance provided in the Costing Standard and in Annex 5.1.5 (Discussion

Paper - Executive Compensation and Bonus). The latter document provides further discussion on when

employee compensation costs, such as bonuses, may be acceptable for a contract.

Intrinsic Motivation

Intrinsic motivation for contractor employees can be created through team bonding between the Government

and the contractor personnel. For example, joint team-building events that encourage collaboration and

empower employees by driving engagement and self-worth. Arguably, intrinsic motivation of contractor

employees could be one of the most effective incentives for encouraging contract performance,

notwithstanding the difficulties inherent in measuring its impact.

It should be noted that the application of this ‘incentive’ is not within the direct means of the contracting officer,

but rather the client department project team. Please refer to Annex 5.1.7 (Discussion Paper - Measures to

Manage Contractor Non-Compliance or Unacceptable Behaviour), and Annex 5.1.8 (Discussion Paper -

Managing Long-Term Contractual Relationships) for further guidance on the importance of contract

relationship management.

Annex 5.1.5 (Discussion Paper - Executive Compensation and Bonus).

Single Source Regulations Office, Single source cost standards-Statutory guidance on Allowable Costs, July 2016.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Capability Acquisition & Sustainment Group Cost Principles,

September 2015.

United States General Services Administration Federal Government, Federal Acquisition Regulations, August 17, 2007.

233 | Page Public Services and Procurement Canada September 30, 2019

ANNEX 5.1.7 (DISCUSSION PAPER - MEASURES TO MANAGE CONTRACTOR NON-

COMPLIANCE OR UNACCEPTABLE BEHAVIOUR)

Measures To Manage Contractor Non-Compliance or Unacceptable Behaviour

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a competitive

process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations and

manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this requires

considerable support from the contracting team, which may include price advisors, client department

representatives and other subject matter experts. This discussion paper is not intended to be a procedural

document.

There are various measures to help ensure contractual outcomes meet the client department’s objectives

and ultimately provide value to Canada. These include the appropriate use of traditional contractual 'carrots

and sticks', as well as softer measures to help ensure the contract works for both parties. The use of contract

incentives to encourage contract performance are discussed in Discussion Pape: Contract Incentives to

Encourage and Reward Enhanced Value to Canada, while the use of softer measures, which focuses on

managing long-term contractual relationships to help develop a performance culture, are described more fully

in Discussion Paper: Managing Long-Term Contractual Relationships. This discussion paper focuses

specifically on measures to manage contractor non-compliance or unacceptable behaviour, which need to

be administered with appropriate regard for the impact they may have on the overall contractual relationship.

Why This Matters?

Contractor non-performance is a potential issue that can undermine achievement of the client department’s

objectives and erode value to Canada. Contractor non-performance can be a result of non-compliance to the

provisions of the contract, unacceptable behaviour or both. Contractor non-compliance occurs when a

contractor fails to fulfill the performance requirements and/or other terms and conditions established in the

contract, whereas unacceptable behaviour occurs when the contractor, or its employees, engage in unethical,

offensive, uncooperative, dishonest, or other inappropriate behaviour(s). A range of contract management

measures can be established to:

 mitigate the risk of non-performance;

 identify and assess the extent of non-performance; and

 rectify or reduce the impact of non-performance.

Such measures help ensure the contractor is motivated to fulfill contract requirements in a cost effective,

timely, and quality manner.

However, some contract management measures are not always effective or feasible in some situations.

Furthermore, when contract management measures are inappropriately designed or administered, the result

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can have unintended consequences and ultimately create a vicious cycle of poor contract performance. Clear

guidance regarding the use of contract management measures is offered herein to help ensure preventative,

detective and corrective measures are structured and administered to help optimize value to Canada.

Recommendation

A combination of preventative, detective, and corrective measures should be employed to manage non-

compliance or unacceptable behaviour by the contractor. Specifically:

 preventative measures should be employed to mitigate the risk of non-performance;

 detective measures should be used to identify and assess the extent of any non-performance; and

 corrective contract management measures should be employed to reduce the impact to the client

department of any contractor non-compliance or unacceptable behaviour, and to correct the

contractor’s performance.

Contract management measures should be designed such that:

 the definition of contract non-performance is based on:

 contract terms and conditions (e.g. statement of work);

 established project management standards; and

 for performance-based contracts, performance criteria for measureable/verifiable,

controllable, and balanced performance objectives.

 the administration of preventative and detective measures reflects the value and complexity of the

contract and is linked to contractor past performance;

 collegial, more informal, tactics, followed by quality control and performance management

remedies, are established as the preferred corrective measures to rectify contractor non-

performance;

 the administration of disincentives uses a tiered approach, based on pre-established criteria,

ideally in accordance with a formal contractor non-compliance point scheme;

 the process by which disincentives are administered, and their severity, are reasonable and align

with applicable Government policy and regulations; and

 the anticipated benefits, in respect to improved client department outcomes, exceed the costs of

administering contract management measures.

 To promote fairness, transparency and consistency, contract management measures (and the

methods for administering them) need to be incorporated within the contract so there are no

surprises for the Government or the contractor and both parties cooperate if these measures have

to be applied in the future.

 Designing and administering appropriate contract management measures requires upfront effort to

define the criteria that will be used to assess non-performance, to structure the associated contract

235 | Page Public Services and Procurement Canada September 30, 2019

terms and conditions, and to monitor the contractor’s performance throughout the resulting

contract.

 Note that a combination of financial and non-financial contract management measures can be

used, in the same contract, to complement each other. Ultimately, selection of the ‘right’ measures

is key to discouraging non-performance, and, where necessary, aligning contract performance, to

achieve cost-effective, high-quality, and timely outcomes.

Analysis

A. Preventative Contract Management Measures

This section describes how a robust contract performance and project management framework can be

employed as a preventative measure to discourage contractor non-compliance or unacceptable behaviour.

It then discusses the merits of using performance securities, as a more assertive preventative measure, to

deter non-compliance.

Contract Performance Management

In the long run, sustainable contract performance requires the contractor to establish appropriate systems,

to support compliance with the contract requirements, and to embrace an appropriate service-focused

culture. Accordingly, an important measure to encourage contractor compliance is to establish reasonable

performance criteria that reflect measurable, controllable (by the contractor), relevant, and balanced

performance objectives.

An example of a performance objective would be to maximize the level of availability for aircraft. The related

performance criteria would indicate the absolute, minimum, and target performance thresholds for the

percentage of time that aircraft are available. A description of these three performance thresholds is provided

below.

 Target performance thresholds are performance criteria for which the contractor is typically

rewarded if they are achieved, but generally not penalized if they are not. They are of particular

importance for contract performance incentives.

 Minimum performance thresholds set the base level or minimum standard of a contract

performance indicator to be achieved. There may be disincentives for not achieving the minimum

performance threshold.

 Absolute performance thresholds indicate the performance criteria at which the achievement of a

performance objective is deemed a failure. There may be more onerous disincentives for not

achieving an absolute performance threshold.

These performance thresholds are also depicted in the exhibit below.

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Note that in practice, establishing effective performance objectives, which the contractor is motivated to

achieve, is challenging. Ideally, when performance objectives are designed and administered effectively, the

contractor is motivated to achieve the rewards associated with the target performance criteria, and the risk

of contractor non-compliance is reduced substantially.

For further discussion on performance-based contracting concepts, please refer to Discussion Paper

Contract Incentives to Encourage and Reward Enhanced Value to Canada.

Contract Project Management

A robust project management framework is an important preventative measure to help manage contractor

performance. It reinforces contract expectations, at all levels, regarding what is to be delivered, who is

responsible for delivering it, when and how it should be delivered, the acceptance criteria, and for how much.

Ideally, the project management framework comprises of up to date project documentation including, but not

limited to:

 a project charter, which incorporates shared objectives;

 a detailed work plan and budget;

 a project code of ethics, which is governed by the PSPC Code of Conduct for Procurement (signed

by the contractor and the Government);

 project roles and responsibilities (for both the contractor and the Government);

 project status reporting and meeting requirements;

 quality control and deliverables approval process;

 project risk management protocols;

 contract management procedures; and

 conflict and dispute resolution procedures, including escalation clauses.

When project management approaches incorporate the above project documentation, align with a formal

framework, and are embraced and followed by both the contractor and client department, they can be a

critical enabler for achieving contract performance.

Two important project management components – the quality control process and conflict and dispute

resolution procedures – are briefly elaborated on below.

Quality Control Process

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As a preventative measure, the quality control process could include a provision for routine quality audits.

Where applicable, the provision should indicate that a contractor’s International Organization for

Standardization (ISO)

certifications may be impacted if the quality audits detect significant contract quality

compliance issues.

Conflict and Dispute Resolution Procedures

Clearly documented conflict and dispute resolution procedures, in the contract, can serve as an effective

preventative measure to deter contract non-compliance. For example, there are escalating conflict and

dispute resolution procedures beginning with escalation to senior management, followed by a dispute

resolution board and culminating with a formal arbitration. Conflict and dispute resolution procedures, such

as arbitration, can be costly for both the contractor and the Government and therefore encourage the parties

to solve potential performance compliance issues before reaching this level.

Performance Securities

Another more assertive preventative measure to help manage contractor performance is to require

performance securities from the contractor at the outset of the contract, or construction phase, to secure due

and proper performance of the contract. Performance securities are used within Canada, the United Kingdom,

the United States, and Australia in both competitive and non-competitive contracts. This section describes

three forms of performance securities:

1 security deposits;

2 performance bonds; and

3 a guarantee of performance.

These securities can be applied on contracts regardless of the basis of payment.

Security Deposits

The contractor provides a deposit to the Government. If the required performance is achieved, the deposit is

returned to the contractor. It the contractor fails to perform, the deposit is forfeit. Examples of security deposits

include a standby letter of credit or certified check.

Performance Bonds

A guarantee is obtained from a third party (e.g. a bank or insurance company) by the contractor. If the

contractor fails to perform, the third party compensates the Government for losses attributed to contractor

non-compliance and arranges to complete the contractor’s obligations in accordance with the contract terms

and conditions.

Guarantee of Performance

A guarantee is provided by the contractor’s parent company, or affiliate, to secure performance of the

contract. If the contractor fails to perform, the guarantor is held accountable.

The ISO is an international standard-setting body, composed of representatives from various national standard organizations, which promotes worldwide

proprietary, industrial, and commercial standards.

Next Generation Performance-Based Support Contracts – Achieving the Outcomes that Defence Requires. Australia - Department of Defense, 5 Feb. 2010.

238 | Page Public Services and Procurement Canada September 30, 2019

Benefits and Drawbacks of each Form of Performance Security

The benefits and drawbacks of each form of performance security are summarized in Exhibit 2.

Exhibit 2 – Performance security benefits and drawbacks

Benefits

Drawbacks

Security

deposit

 The contractor is motivated to perform,

as it puts its own financial collateral at

risk.

 Relatively simple to administer since

only two parties are involved.

 May not be viable for a contractor, from

a cash flow perspective, when its

primary cash flow source is the

contract in question. This is quite likely

to be an issue for some small and

medium enterprises.

 Does not secure performance of the

contract if the contractor defaults.

Performance

bond

 Secures performance of the contract if

the contractor defaults.

 A viable approach for a contractor who

does not have a strong cash flow

position (because the contractor is

responsible only for financing the

performance bond).

 May not be viable for a non-competitive

contract because a guarantor may not

have the capability to complete the

requirements of the guaranteed

contract if the original contractor

defaults.

 Performance bonds are a relatively

high cost form of security and these

costs will be reflected in the

contractor’s price.

 More difficult to administer since more

than two parties are involved.

Guarantee of

performance

 Helps secure performance of the

contract if the contractor defaults.

 The contractor is more motivated to

perform, as its parent company or

affiliate is also accountable and has a

vested interest in the performance of

the contract.

 More viable form of security, than other

forms, for a non-competitive contract,

assuming there is a parent company or

affiliate with additional resources (this

assumes that a parent company or

affiliate has the capability to deliver on

 Infeasible if the contractor does not

have a parent company or affiliate.

 The contractor’s parent company or

affiliate may not be willing to expose

itself to such a financial risk, unless it

receives a higher profit premium on the

price of the guaranteed contract.

 Similar performance issues may arise

with a related party performing the

work.

 More difficult to administer since more

than two parties are involved.

239 | Page Public Services and Procurement Canada September 30, 2019

Benefits

Drawbacks

the requirements of the non-

competitive contact).

Considerations for the Use of Performance Securities

As per Exhibit 2 which summarizes benefits and drawbacks, performance securities can be costly, from both

the contractor’s and the Government’s perspective. In determining whether to make use of a performance

security, contracting officers should consider the following factors.

 The dollar value of the contract and the financial capacity of the contractor.

 The complexity of the work; are the requirements of a routine nature?

 The feasibility of securing a performance bond and the anticipated cost.

 The feasibility of securing a guarantee of performance and the strength of the financial capacity of

the guarantor.

 The experience of the contractor as it pertains to the scope and requirements of the contract; has

the contractor completed similar work for past customers?

 The contractor’s past performance; has the contractor formerly received poor performance

evaluations from the Government or other customers?

 The alignment with applicable Government policies and regulations; does the administration of the

performance security align with financial, legal and/or contracting policies?

 Do the anticipated benefits, in respect to improved client department outcomes, exceed the costs of

administering the performance security?

Chapter 4.50 Financial Security of the Supply Manual provides guidance for the administration of

performance securities. The above discussion on performance securities is meant to supplement this

guidance.

B. Detective Contract Management Measures

A robust project management framework establishes appropriate monitoring and oversight for the contract

to help identify contractor non-compliance and assess the extent and impact on the desired contract

outcomes. This section describes two detective measures:

1 earned value management; and

2 quality assurance requirements.

Earned Value Management

Description of Earned Value Management

240 | Page Public Services and Procurement Canada September 30, 2019

Earned value management is used to measure project performance and progress in a pre-agreed and

objective manner.

It is an effective tool for monitoring and projecting costs, in relation to a project’s schedule

and performance accomplishment, and can help detect and anticipate performance compliance issues and

risks. Earned value management can be applied on contracts where the underlying payment is based on

cost estimates – the budget of a contract must be pre-established –, which is not the case for contracts where

the underlying payment is based on actual costs.

Example 1

Consider the below example, to better understand the calculation of earned value management

A contractor is engaged in a year long contract and is required to produce 10 widgets in the first month at

$1,000 each. At the end of the month, the contractor has spent $9,000 but has only produced 8 widgets.

Using the above information, the contractor’s:

 planned valued (budgeted cost of work scheduled) is $10,000 (= $1,000 x 10);

 earned value (budgeted cost of work performed) is $8,000 (= $1,000 x 8);

 actual cost of work performed is $9,000;

 schedule variance (earned value minus planned value) is -$2,000 (= $8,000 - $10,000); and

 cost variance (earned value minus actual cost) is -$1,000 (= $9,000 - $10,000).

Based on these earned value management calculations, the contractor is exceeding the production budget

and is behind the production schedule for the month. Correspondingly, the contractor’s ‘performance’ for the

first month indicates that there is a risk that budget and schedule compliance may be issues for the remainder

of the contract duration.

When to Use Earned Value Management

Currently, the Supply Manual and the Standard Acquisition Clauses and Conditions do not provide explicit

guidance on when and how to apply earned value management on contracts within Canada.

The contracting officer should consider the merits of using earned value management based on the value,

risk, and duration of a contract. The higher the value, risk, and duration of a contract, the more appropriate it

may be to apply earned value management. Note that the effectiveness of earned value management can

be compromised if the initial cost estimate is weak.

Coker, Ryan L. and Peeler, David L. EVM and Contracting: A Take on Effective Affordability Issues, ICEAA World, Issue #2, 2017.

241 | Page Public Services and Procurement Canada September 30, 2019

This guidance generally aligns with guidance provided by Australia and the United Kingdom.

4041

The United

States is more prescriptive in that it requires earned value management to be incorporated into the project

management framework for any contracts with a value over $20 million.

Quality Assurance Requirements

Description of Quality Assurance Requirements

Quality assurance checks confirm that the performance of contract work and deliverables meet agreed upon

criteria. Responsibility for quality assurance checks can lie with the contractor, the Government, or both.

From the contractor’s perspective, this may include, but is not limited to, maintaining substantiating evidence

that the goods or services conform to contract quality requirements. From the Government’s perspective, this

may include, but is not limited to, performing quality assurance reviews at various phases of the contract, as

may be necessary, to determine whether the goods or services conform to the statement of requirements.

Alternately, a third-party could be contracted to perform an independent assessment of contract performance

quality. Overall, routine quality assurance inspections can be an effective control mechanism to detect and

anticipate performance compliance issues and risks.

How to Administer Quality Assurance Requirements

For the administration of quality assurance requirements, contracting officers should consult the guidance

currently provided by PSPC in Subsection 5.D - Delivery, Inspection and Acceptance from the Standard

Acquisition and Clauses Conditions Manual.

Overarching Considerations for the Use of Detective Contract Management Measures

Assessing the Cost and Expected Benefits of Earned Value Management and Quality Assurance

A consideration in determining how to incorporate earned value management and quality assurance into the

project management framework is that the value of these tools may be diminished by the costs associated

with their implementation and administration.

Accordingly, in assessing whether to incorporate earned value management and quality assurance contract

management measures, the contracting officer should consider:

 the past performance and relevant experience of the contractor;

 the dollar value and complexity of the contract;

 the anticipated cost to administer these provisions; and

 applicable Government policies and regulations.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Earned Value Management.

Ministry of Defence, Acquisition System Guidance, Commercial Toolkit, Earned Value Management, December 2017.

Coker, Ryan L. and Peeler, David L. EVM and Contracting: A Take on Effective Affordability Issues, ICEAA World, Issue #2, 2017.

242 | Page Public Services and Procurement Canada September 30, 2019

What to Consider when Non-Compliance is Detected

When non-compliance is detected, a root cause analysis should be conducted to determine whether non-

compliance was within or outside of the collective control of the contracting parties. The results of the root

cause

analysis should determine the type and severity of corrective measure to apply. Moreover, a formal

non-compliance point scheme, aligned with the terms and conditions of the contract, could be used to track

and assess contract performance compliance issues. The use of a non-compliance point scheme is

discussed in more detail in the following section.

C. Corrective Contract Management Measures

Corrective contract management measures should be employed to reduce the impact to the client department

of any contractor non-compliance or unacceptable behaviour, and to ultimately correct contract performance.

This section briefly describes several potential corrective measures, ranging from collegial, more informal,

tactics to quality control and performance management remedies, and to more onerous, financial and non-

financial disincentives to rectify contractor non-performance.

Note that guidance already exists for the administration of corrective measures in the following PSPC policy

documents:

 Vendor Performance Corrective Measure Policy contained within the Standard Acquisition and

Clauses Conditions Manual; and

 Chapter 8 – Contract Management from the Supply Manual.

The below discussion on the administration of corrective measures is meant to supplement this guidance.

Collegial Tactics

Description of Collegial Tactics

Examples of informal tactics include, but are not limited to, meetings or email communications and team-

building workshops between contractor and Government personnel to resolve compliance or behavioural

issues. These tactics are most effective when they are implemented in a non-confrontational manner, where

communications is direct and supported by evidence or examples of the observed non-performance.

When to Use Collegial Tactics

Collegial, more informal, tactics are often a more effective method of addressing non-performance than the

enactment of more formal, or contractually established measures, particularly when non-performance is

infrequent and the impact is not severe. Where possible, such tactics should be incorporated in the contract

as the first measure for correcting non-performance.

Quality Control and Performance Management Remedies

A root cause analysis is a method of problem solving used for identifying the primary causes of performance compliance issues

243 | Page Public Services and Procurement Canada September 30, 2019

When more formal corrective measures are needed to address contractor non-performance, quality control

and performance management remedies may be appropriate. The application of quality control and

performance management remedies should be aligned to the project management standards established in

the contract.

Description of Quality Control Remedies

Quality control involves monitoring specific contractor results to determine whether they comply with relevant

quality standards and identifying ways to eliminate the cause(s) of unsatisfactory performance, resolve any

issues that arise, and help mitigate risks associated with the solution.

When to Use Quality Control Remedies

Exhibit 3 provides examples of quality control remedies and when they may be appropriate.

Exhibit 3 – Quality control remedies to consider

Nature of Non-

performance

Description of Consequence

Potential Quality Control Remedies

Individual or

isolated case

An individual team member produces a

deliverable with an error in content,

consistency, correctness or compliance

 Rework the deliverable

 Review applicable standard and/or

guidelines

Insufficient

comprehension

leading to

recurring

defects

Team members are unable to

effectively apply a specific project

standard or guideline to the production

of deliverables

 Additional training for the delivery

team

 Clarify tasks

 Clarify standards and/or guidelines

which are ambiguous

Inadequate

project

standards or

guidelines

Team members are unable to

effectively apply a specific standard or

guideline to the production of

deliverables

 Revise portions of methodologies,

standards and/or guidelines which

prove to be inappropriate for the

work being performed

Quality control remedies can be administered by the client department or the contracting officer. For the

administration of quality control remedies, the guidance currently provided by PSPC, in Subsection 5.D -

Delivery, Inspection and Acceptance from the Standard Acquisition and Clauses Conditions Manual, should

also be consulted.

Description of Performance Management Remedies

This section describes performance management remedies that may help to correct unacceptable behaviour.

244 | Page Public Services and Procurement Canada September 30, 2019

Performance management remedies may include the following steps:

 problem identification and analysis;

 a constructive discussion of problem behaviors;

 anticipation of the likely reaction and an appropriate response to the actual reaction to the

discussion;

 formal documentation of the discussion; and

 follow-up.

The above components can be formally administered using a performance improvement plan. A description,

and the benefits and risks, of a performance improvement plan are discussed next.

Description of a Performance Improvement Plan

A performance improvement plan is a formal, structured, and specific action plan which outlines contractor

performance compliance and behaviour issue(s) and the steps that will be taken to improve performance.

Typically the plan is developed by the contractor and approved by the client department in consultation with

the contracting officer.

Performance improvement plans should build upon consideration of the following factors:

 Is the contract performance criteria and/or scope reasonable? Contracts can be complex, and the

scope of work can be unclear or evolving. Accordingly performance criteria, and/or objectives, may

have to be revised.

 What are the root causes of the performance compliance issues, and is the Government able to

support the contractor in rectifying them? For example, the root cause could be a shortfall in the

contractor’s cash flow position. In some situations the Government may wish to adjust the contract

payment schedule to mitigate the contractor’s cash flow problem, while still meeting with the

requirements of the Financial Administration Act.

 Are personnel from both the contractor and the Government side exhibiting unacceptable behaviour?

For example, if the respective personnel are forming a hostile relationship, the project steering

committee could assess the feasibility of redeploying these personnel so they do not have to interact

with each other.

The Merits of a Performance Improvement Plan

Establishing and implementing a contractor performance improvement plan can be an effective tool for

administering both quality control and performance management remedies. Performance improvement plans

allow the contractor to take ownership of their performance and demonstrate their commitment to improve

and correct contract compliance and behaviour issues. Furthermore, by formally providing an opportunity for

the contractor to improve its performance, the Government’s risk of litigation is decreased if the performance

does not improve and more onerous measures are required.

Considerations for the Use of a Performance Improvement Plan

Managing Difficult Employees and Disruptive Behavior, Society for Human Resource Management, 4 November 2015.

245 | Page Public Services and Procurement Canada September 30, 2019

Two important considerations for the use of a performance improvement plan are that:

 structuring and administering a performance improvement plan requires time and resources from

both the contractor and the Government; and

 the relationship between the contractor and the Government may become antagonistic, especially

when the contractor interprets the performance improvement plan as a first step toward the inevitable

application of more onerous measures.

Accordingly, the intent and structure of a performance improvement plan, including the conditions under

which one would be required, should be agreed upon by both parties, at the outset of the contract, and

formally documented in the project charter.

Financial and Non-Financial Disincentives

This section first outlines a proposed framework for a non-compliance point scheme. Second, it discusses

the effectiveness of the application of pre-established financial disincentives in correcting contractor non-

compliance. Third, it discusses the effectiveness of non-financial disincentives. Last, it briefly discusses

reputational disincentives, including the broader impact they can have on a contractor’s future marketability.

Non-compliance Point Schemes

Disincentives should be negotiated upfront and included in the contract terms and conditions. The application

of pre-established contract disincentives should be guided by a formal contractor non-compliance point

scheme, which aligns with the terms and conditions of the contract.

A non-compliance point scheme can be used to track and assess areas of non-compliance. The scheme

should consider the following:

 what performance indicator to assess in order to achieve the required performance objectives (e.g.

cost, asset availability, schedule);

 the level of contract non-compliance for a performance indicator (e.g. as based on target,

minimum, or absolute performance criteria);

 any performance trends for the assessed indicator (e.g., has performance been improving,

deteriorating, or stagnant);

 the nature of the root cause, and whether it was within or outside of the contractor’s control;

 potential impact on contract outcomes; and

 overall contractor non-compliance rating.

The pre-established criteria for applying disincentives should be based on the above factors. Criteria should

generally be structured so that disincentives are applied using a tiered approach (i.e. where feasible, less

246 | Page Public Services and Procurement Canada September 30, 2019

onerous measures are applied first when non-performance is detected and escalate to more onerous

measure with repeated and/or increasingly serious non-performance is detected). Formal documentation of

the details described in the non-compliance point-scheme provides auditable evidence in the case that a

lawsuit is issued against the Government.

Financial Disincentives

Financial disincentives make use of a monetary adjustment to reprimand the contractor for non-compliance.

Financial disincentives are used, within Canada, the United Kingdom, the United States, and Australia, in

both competitive and non-competitive contracts. This section discusses four types of financial disincentives:

1 at-risk amounts;

2 gain/pain sharing incentives;

3 holdbacks; and

4 liquidated damages.

These financial disincentives can be applied for all types of basis of payment or pricing methods.

At-Risk Amounts

Performance is linked to a portion of the contractor’s ‘normal’ payment. For example, a technical performance

indicator could be the percentage level of availability for aircraft. For every percentage below the target (or

minimum) availability performance threshold, the contractor’s ‘normal’ payment would be reduced by a

variable amount. An example for illustrative purposes solely is provided below.

Example 2

Consider the below example, to better understand the calculation of at-risk amounts.

A. Contractor’s normal payment for the month

$100,000

B. At-risk amount (payment deduction for

each % point below minimum performance

threshold)

$1,000

C. Minimum availability performance threshold

80%

D. Achieved availability for the month

75%

E. Payment adjustment (= (D-C) x B or (75 –

80) x $1,000)

-$5,000

F. Total payment (= A + E or $100,000 -

$5,000)

$95,000

Next Generation Performance-Based Support Contracts – Achieving the Outcomes that Defence Requires. Australia - Department of Defense, 5 Feb. 2010.

247 | Page Public Services and Procurement Canada September 30, 2019

In alignment with Discussion Paper 13, at-risk amounts may also be referred to as variable payments.

Gain/Pain Sharing Incentives

Performance is penalized (rewarded) through fee arrangements whereby both the contractor and the client

department share the risk (reward) of not meeting (meeting) contract performance criteria. Typically, a pre-

agreed formula is used as the basis to share losses (gains), as a result of the negative (positive) variances,

between the Government and the contractor. For illustrative purposes solely, an example based on target

cost criteria is provided below.

Example 3

Consider the below example, to better understand the concepts of gain/pain share incentive calculation

where the basis of payment cost reimbursable

A. Target contract cost

$10M

B. Contractor share of gains/losses

20%

C. Government share of gains/losses

80%

D. Final contract cost

$11M

E. Contract price ceiling

$12M

F. Non-adjusted contract fee

$1M

G. Adjusted fee: (= B x [A – D] + G or 20% x [$10M - $11M] +$1M)

$0.8M

H. Final contact price (= D + G or $11M + $0.8M)

$11.8M

Holdbacks

Payment amounts, associated with a particular milestone or delivery date, are withheld until the required

performance is achieved. Note that a holdback may also be used as a preventative measure in some

industries and situations, such as for example in construction contracting.

Liquidated damages

The Government payment is reduced based on a pre-estimated loss, or rate of loss, associated with the

contract’s non-performance, without being required to prove actual damages. Note that these liquidated

damages would not be triggered until all pre-established cure provisions are exhausted.

248 | Page Public Services and Procurement Canada September 30, 2019

Example 4

For example in an international border crossing such as a bridge or tunnel, liquidated damages associated

with unscheduled lane closure to affect emergency repairs might be as follows:

Occurrence of

unscheduled lane

closure

Time

Liquidated Damages

($ per hour per lane)

Peak business periods

Monday to Friday 7 am to 6 pm

$1,000

Off peak hours

weekdays and weekends 6 pm to 7 am

$500

Special periods

Identified dates (e.g., holidays)

$2,500

Benefits and Drawbacks of each Financial Disincentive Type

The benefits and drawbacks of each financial disincentive type, are summarized in the exhibit below.

Exhibit 4 – Financial disincentive benefits and drawbacks

Financial

Disincentive

Benefits

Drawbacks

At-risk

amounts

 Provides contractor motivation to

correct performance, when there is a

paired positive incentive (i.e. variable

payment) reward for exceeding the

target performance criteria. Note that

at-risk amounts, and the paired

incentive rewards, if applicable, would

be assessed at each payment period.

 If the at-risk amount is small, this

disincentive may not be the most

effective measure to rectify contractor

performance.

Gain/pain

sharing

incentives

 Assuming gain/pain sharing incentives

are applied at various milestones

during the contract, and not just at the

end of the contract, the Government

and contractor may be encouraged to

work together, to correct performance,

and avoid sharing a financial loss at a

future contract milestone date.

 May incentivize contractor

performance when performance does

not meet target criteria, but still

complies with minimum or absolute

criteria (i.e. it would be more feasible

 Sharing ratio of losses (gains) could be

misaligned and discourage the

contractor from improving

performance.

 Losses from not meeting performance

criteria are shared by the Government.

 While gain sharing is effective, loss

sharing can be a significant distraction

as parties seek to minimize loss and

apportion blame. Collegiate

behaviours, if they existed, could

collapse.

249 | Page Public Services and Procurement Canada September 30, 2019

Financial

Disincentive

Benefits

Drawbacks

for the contractor to improve its

performance and potentially realize an

incentive reward).

Holdbacks

 Provides the Government with means

to rectify contract non-performance.

 May further disrupt contract

performance, if the contractor’s cash

flow situation is a critical success factor

for achieving contract performance;

this risk may be particularly material if

the contractor is a small or medium

enterprise or if the contract in question

is the primary cash flow source for the

contractor.

Considerations for the Use of Financial Disincentives

One overarching consideration for the application of financial disincentives is that, while necessary, financial

sanctions can exacerbate the underperformance because the contractor is less likely to invest in restorative

measures.

Additionally, the impact on contractor’s profitability may sometimes not be significant enough to motivate the

contractor to correct its performance. This consideration, which was also identified for incentives in

Discussion Paper: Contract Incentives to Encourage and Reward Enhanced Value to Canada, becomes

particularly material when:

 a contract price floor constrains the parameter (e.g. the dollar amount) of financial disincentives; or

 correction of performance requires disproportionate additional resources from the contractor.

In these situations, the contractor may not be incentivized to correct/improve performance and may instead

redirect effort to supporting more profitable customers and or growth initiatives.

Scope-based Non-financial Disincentives

The application of scope-based disincentives, as informed by contractually pre-established criteria, may be

appropriate and effective in instances where financial disincentives were not successful, are not feasible, or

need to be supplemented. Scope-based non-financial disincentives are used, within Canada, the United

Kingdom, the United States, and Australia, in both competitive and non-competitive contracts. The section

describes four types of scope-based disincentives:

1 warranties;

Next Generation Performance-Based Support Contracts – Achieving the Outcomes that Defence Requires. Australia - Department of Defense, 5 Feb. 2010.

250 | Page Public Services and Procurement Canada September 30, 2019

2 step in rights;

3 repatriation of services; and

4 termination.

These disincentive types can be applied for all types of basis of payment or pricing methods.

Warranties

The contractor is requested to provide an assertion as to the sufficient performance of different aspects of a

contract, including general warranties, fitness for purpose warranties, latent defects, and technical data

warranties. Where performance is not sufficient, corrective measures to fix the identified deficiencies are

usually included.

Step in Rights

The government can step in and have the services performed by itself or another party, with the costs of this

work being at the expense of the contractor.

Repatriation of Services

Services can be removed from the contract by the government and allocated back to the government, which

can be used to reduce the scope of a contract.

Termination

Termination provides the ability to end the contract, in whole or in part, in response to default (including poor

performance) by the contractor. In the case of a service contract another variation would be to reduce the

tenure or scope of the contract.

Benefits and Drawbacks of each Scope-based Non-financial Disincentive Type

The benefits and drawbacks for each scope-based disincentive type are summarized in the exhibit below.

Exhibit 5 – Scope-based disincentives, benefits and drawbacks

Scope-based

Disincentives

Benefits

Drawbacks

Warranties

 Simplest scope-based disincentive to

administer, as contractor is held

accountable to rectify performance

compliance issues.

 Effective, when the contractor has the

capability, to rectify performance

compliance issues.

 Not an appropriate disincentive to

rectify non-compliance for cost or

schedule performance.

 Not an appropriate disincentive when

contractor does not have the capability

to rectify performance compliance

issues.

 The contractor may incorporate the

costs of warranty (in excess of a

reasonable warranty allowance) into

the price of the contract.

251 | Page Public Services and Procurement Canada September 30, 2019

Scope-based

Disincentives

Benefits

Drawbacks

Step in rights

 The contractor is held accountable for

its performance compliance issues, as

it is responsible for paying for the costs

of the remainder of contract work being

performed by another party.

 May be effective, when the contractor

does not have the capability, to rectify

performance compliance issues.

 May be appropriate when contractor

non-compliance is assessed as

significant.

 May be appropriate when the

Government has found a qualified

supplier to replace the current

contractor.

 May not be viable for a non-

competitive contract, because the

Government or another party may not

have the capability to complete the

requirements of the contract.

 Difficult to administer due to

contractual amendment requirements

and the challenges of employing

another party to perform the work.

 Taxpayers may lose faith in the

integrity and effectiveness of the

acquisition system in respect to the

quality, timeliness, and cost-

effectiveness of service delivery.

Repatriation

of services

 May be appropriate, when the

contractor does not have the

capability, to rectify performance

compliance issues.

 May be appropriate when the contract

in question can be scrutinized to

determine what portions of the

contract can and cannot feasibly be

performed by the government.

 May not be viable for a non-

competitive contract, in such that the

Government or another party may not

have the capability to complete the

‘repatriated’ requirements of the

contract.

 Even when the repatriation of services

is feasible, there is the risk that

contract performance will further

deteriorate, especially if the contractor

and the added party are required to

collaborate, but have formed a hostile

relationship.

 Difficult to administer due to

contractual amendment requirements

and due to the integration of another

party to perform contract work.

Termination

 May be effective, when the contractor

does not have the capability, to rectify

performance compliance issues.

 May not be viable for a non-

competitive contract, in such that the

Government or another party may not

have the capability to complete the

requirements of the contract.

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Scope-based

Disincentives

Benefits

Drawbacks

 May be appropriate when contractor

non-performance is assessed as

significant.

 May be appropriate when the

Government has found a qualified

supplier to replace the current

contractor.

 Does not secure performance of the

contract for the Government.

 The termination process can be costly

and lengthy

 Taxpayers may lose faith in the

integrity and effectiveness of the

acquisition system in respect to the

quality, timeliness, and cost-

effectiveness of service delivery.

Considerations for the Use of Scope-based Non-financial Disincentives

The most significant consideration for scope-based disincentives, as they apply to non-competitive contracts,

is that their application may not be effective, or feasible, when the Government is unable to find a qualified

supplier to replace the non-compliant contractor. One reason for this could be due to the non-compliant

contractor owning background intellectual property that is critical for the accomplishment of performance

requirements. In order to mitigate this, the Government could consider the following:

 assessing the feasibility of holding background intellectual property in escrow at the outset of the

contract; and

 including conditional performance terms in the contract that allow the Government to provide the

intellectual property to another supplier to complete contract requirements if the contractor is non-

compliant with performance requirements.

Reputational Disincentives

Description of Reputational Disincentives

Another disincentive type to consider employing is reputational disincentives. Reputational disincentives

could be administered formally or indirectly.

 formal means of administration could include evaluation forms or a supplier performance

management program; and

 an indirect means of administration could be through media coverage that highlights the reasons for

failure of a contracted project.

Reputational disincentives could penalize the contractor in a broader context through the following ways.

 The contractor could have a decreased chance of winning future contracts, competitive or non-

competitive, particularly when the potential customer assesses past contractor performance when

awarding a contract.

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 There could be a potential negative impact on the share price for publically traded contractors, as a

result of adverse media coverage.

How should Reputation Disincentives be Used?

Specifically, Canada should assess the merits of establishing a strategic supplier management program

similar to the one existing in the United Kingdom. As part of this program, the Cabinet Office collects

information on each contract with strategic suppliers every six months.

The Office also gathers ad hoc

intelligence from departments each month. Each of the strategic suppliers is assigned an overall performance

rating of red, amber, or green. Ratings are based on operational delivery, but also other factors including the

savings they have made and their level of engagement with government’s wider commercial agenda. There

is also a ‘high risk’ rating, based on poor performance or financial risk, which entails a formal process of

designation and an improvement plan. Ultimately, the establishment of a strategic supplier management

program will enable the Government to conduct a thorough pre-qualification of potential suppliers, and

correspondingly use this assessment to develop an appropriate contracting strategy, for the client department

project requirements.

The recommended approach to reputation disincentives differs from Australia, with this jurisdiction using a

more aggressive approach. The Australian Department of Defence uses a public 'name and shame' approach

on large projects where contractors have not performed, and there appears to be a reluctance on the part of

the company to invest in a remedy for the situation. A 'Projects of Concern' list is publicly reported by the

Minister and discussed at publicized Senate hearings.

Considerations for the Use of Reputational Disincentives

Key considerations for the use of reputational measures include that their use could result in:

 exposure to litigation, for defamation or for future lost profits, from the contractor; or

 a more hostile relationship during the remaining tenure of the contract.

As such, public statements regarding contractors need to comply with all applicable guidance regarding

communications.

Managing Government Suppliers. United Kingdom - National Audit Office. November 2013.

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ANNEX 5.1.8 (DISCUSSION PAPER - MANAGING LONG-TERM CONTRACTUAL

RELATIONSHIPS)

Managing Long-Term Contractual Relationships

Context

This discussion paper provides guidance to contracting officers in the negotiation of non-competitive

contracts or contracts where price negotiations with the successful bidder are required following a competitive

process.

This discussion paper is intended to help inform contracting officers, to prepare for contract negotiations and

manage the contract through its lifecycle. Based on the scale and complexity of the acquisition, this requires

considerable support from the contracting team, which may include price advisors, client department

representatives and other subject matter experts. This discussion paper is not intended to be a procedural

document.

Why This Matters?

Long-term contracts can optimize value to Canada by, for example, by:

 enhancing price certainty;

 fostering industry confidence to invest;

 aligning service requirements to the underlying asset life; and

 sustaining a strategic national industry.

At the same time, long-term contracts can amplify the risk of underperformance and overpayment when such

contracts are poorly managed or fail to incorporate appropriate incentives and flexibility to address change.

The effectiveness of long-term contracts is often affected by inadequate contract management, misaligned

incentives and poor relationships between the parties.

Poor long-term contractual relationships could be a consequence of government policies and a lack of

awareness. Challenges can arise when long-term contracts are not sufficiently structured to respond to

inevitable changes in an appropriate and timely manner. Changes may be precipitated by a diverse range of

forces, such as evolving performance requirements, technological advancements, shifts in the contractor’s

cost structure, and external factors that require ad hoc negotiations. The Government’s ability to identify and

implement effective contract amendments requires consistent contract oversight and good relationships

between the parties.

In addition to the issues associated with inadequate contract management and misaligned commercial

relationships, other potential risks, to both parties in a long-term contract, may arise from the high

dependency on a single contractor or customer. For the contractor, these risks may include the opportunity

cost to earn more income with another customer and the potential to become less competitive due to shielding

from market forces. For the Government, these risks may include increased exposure to the risk of contractor

default due to insolvency or failure to deliver—these risks could be exacerbated by the lack of alternative

255 | Page Public Services and Procurement Canada September 30, 2019

contractors when the contract expires and needs to be renewed (i.e., an ongoing supply contract as opposed

to a contract for a project).

Although long-term contractual relationships offer benefits, benefits can only be realized when good contract

management practices are implemented, commercial interests are aligned between the parties and risks are

identified and mitigated

Recommendation

In order to enhance the value that long-term contracts provide to Canada, contracting officers should assess

when to establish long-term contracts and what provisions will help to position the parties for long-term

success. In particular, contracting officers should incorporate a proactive management approach because it

can be a key success factor to ensure that long-term contracts optimize value to Canada. For example:

 Proactive contract management can help to ensure both parties fully meet their obligations as effectively

and efficiently as possible. It can help ensure that the parties identify and resolve any issues or concerns

in a timely manner which is consistent with the contract terms and conditions.

 Proactive contract management can enable ongoing assessment of the contractor’s performance and

whether the desired outcomes are being met; or whether Canada’s requirements could be better served

by going out to the market (which requires monitoring of the market, including prices, labour trends and

innovations).

 As part of a proactive contract management approach, more emphasis should be placed on relationship

management, rather than focusing solely on the transactional nature of the contract. Strong collaborative

relationships can play an important role in helping the parties respond to change, which is an inevitable

factor in any long-term contract. Guidance to proactively develop and maintain effective long-term

contractual relationships could build upon the guiding principles of ISO 44001—an international standard

for developing a platform to facilitate effective business relationship management.

 A proactive contract management approach should incorporate provisions to manage and promote

consistency in the event of turnover in contractor personnel and contract management officers, such as

the documentation of intent and agreements. These provisions should help to ensure that the succeeding

contract management officers can enforce the agreements of their predecessors, perform the

Government’s responsibilities in a consistent manner (e.g., timely review of contractor reports and

requests), and are not exploited by the contractor.

These guiding principles for long-term contractual relationships could be applied for performance-based

contracts, which typically span a longer time horizon.

It is important that both the Government and the contractor build capability and capacity to properly manage

contracts. For example, the effectiveness of long-term contracts can be undermined by failure to provide

timely communication, the unavailability and/or frequent turnover of contract management personnel, and a

singular focus on the transactional aspect of the contract

. Leading contract management practices highlight

the need for both parties to work collaboratively to respond to inevitable changes in a long-term contract.

As opposed to the establishment of a platform to work collaboratively to resolve issues and concerns.

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Analysis

A. What are the potential benefits of long-term contracts?

Benefits of long-term contracts

Good long-term contractual relationships can build mutual trust and provide benefits for all parties involved,

including:

 assuring the supply of goods and services over a longer term without the costs and risks associated with

frequent acquisitions;

 creating opportunities for improved contractor performance due, in part, to the long-term commitment to

the contractor

;

 encouraging a lifecycle approach to the development of major equipment and infrastructure projects;

 facilitating long-term efficiencies in the client department, the contractor and the supply chain;

 enabling the contractor (and its supply chain) to obtain more favourable financing as it can borrow against

the “collateral” of a long-term contract, which may then reduce the overall price to the Government;

 enabling long-term capacity and resource planning, while also potentially yielding economic development

benefits (e.g., workforce training and development of intellectual property to support market expansion);

and

 preparing Canada for unforeseen external factors (e.g., unexpected substantial changes in the relevant

market) through collaboration with the contractor.

These benefits are particularly attractive when procuring goods and services in capital-intensive industries,

such as construction and telecommunication, with long product development cycles or industries requiring

specialized skills and knowledge.

Examples from comparator jurisdictions

The United Kingdom’s use of long-term contracts, by way of multi-year performance-based contracts, have

been helpful to reduce costs because contractors are better able to stabilize their supply chains and to obtain

better prices from the supplier base.

Similarly, the Australia Department of Defence has noted that the use of long-term contracts for major surface

ship repair and maintenance have helped to deliver greater efficiencies and savings — stemming from the

contractor’s ability to progressively adopt lessons learned from prior activities as part of the continuous

improvement program.

B. What are the potential risks of long-term contractual relationships?

Long-term contractual relationships can expose both parties to substantial risk, including:

An extended time period can incentivize the contractor to invest in research and development of new technology, methodologies, assets and employees to

drive innovation and continuous improvement thereby improving quality and capability.

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 from the Government’s perspective, reducing the overall size and competitiveness of the market in

relatively shallow supply markets;

 from the Government’s perspective, encouraging and/or facilitating monopolistic behaviour by the

contractor, including uncompetitive pricing or variable quality;

 from the Government’s perspective, increasing the Government’s exposure to the risks of contractor

insolvency and the contractor’s failure to perform because of an overreliance on a single supplier;

 from the Government’s perspective, decreasing value to Canada over the term of the contract due to

external factors, such as the emergence of more cost-effective solutions or falling market pricings; and

 from the contractor’s perspective, potentially reducing the contractor’s ability to compete in the market,

increasing the contractor’s exposure to the risk of contract termination, and reducing the contractor’s

ability to negotiate terms that are favourable or acceptable to the contractor because of an overreliance

on a single customer.

Failure to establish a proactive and collaborative working relationship between the parties can potentially

amplify the risks inherent in a long-term contract. For example, a 2014 UK National Audit Office report noted

that the lack of a strategic approach to managing contractual relationships inhibited parties from collaborating

effectively to address problems and improve service.

To mitigate long-term contracting risks, substantial planning is required to structure and implement effective

contractual terms and conditions. Generally, a multi-functional team is required. The team might include the

client department, and subject matter experts with knowledge, skills and experience to help ensure an

effective framework for contract management is established within the contract. In many instances, support

from internal subject matter experts and external advisors can be a key success factor.

C. How can contractual terms and conditions help in the management of long-term contracts?

As demonstrated in Exhibit 1, various standard contract terms and conditions can help to position a long-

term contractual relationship for success.

Exhibit 1-Considerations of contract terms and condition

Contract term and

condition

Considerations

Appropriate definition

of requirements

 By incorporating performance-based requirements and referencing

appropriate external standards (e.g. standards by the International

Organization for Standardization), expectations can be set at the onset of

the contractual relationship. Additionally, external standards are updated

from time to time and can help ensure the good or service is consistent

with evolving industry requirements.

 Prescriptive requirements increase the need for change orders (and

hence cost) in order to accommodate minor shifts in operations or external

conditions. Where possible, performance requirements should be used

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Contract term and

condition

Considerations

(and should describe in sufficient detail to avoid ambiguity which could

become the subject of dispute).

 Overly prescriptive requirements can limit the potential for contractor

innovation, thereby compromising the potential for cost reductions, quality

improvements, and overall optimization of the value to Canada.

Provisions to

discourage, and

mitigate the impact of,

poor performance by

the contractor

 Performance based disincentives can be important tools to reduce

payment to the contractor when it fails to deliver in accordance with the

requirements (e.g., missed milestone dates or for failure to maintain an

asset in accordance with pre-established availability requirements).

 Additional provisions that may be incorporated to address chronic under-

performance include increased reporting and monitoring requirements.

For example, the contractor may be required to develop and implement a

remediation plan, which is then approved and tracked by the Government

(typically by the contracting officer or an independent third party).

Provisions to

encourage, and share

the benefits of

exemplary

performance by the

contractor

 Performance-based incentives can be important tools to increase

payment to the contractor if it exceeds the base pre-established

performance requirements. Refer to Discussion Paper: Contract

Incentives to Encourage and Reward Enhanced Value to Canada which

discusses contract incentives to encourage and reward enhanced value

to Canada.

 Rolling contract extensions

(with strong off ramps for performance

failures) can be a powerful incentive for the contractor to perform.

Provisions for

extensions of the

contract to incentivize

investment and

innovation by the

contractor

 Provisions for extensions can help Canada to take advantage of, for

example, lower supply costs or technological innovations that could

improve outcomes or drive efficiencies.

 Provisions for extensions can also be helpful in instances when the life

expectancy of a project is uncertain.

 Implement a partnering approach with industry by way of long-term

availability-based contracts with options or series of long-term extensions

to manage relationships with contractors

Payment mechanisms

to specially address

financial risk

 While the initial contract term may transfer most (if not all) cost risk to the

contractor, gain/pain sharing mechanisms in the later years, or any

optional term(s), can help incentivize collaboration and reward contractor

innovation.

Rolling contract extensions are a series of extension options that are held by the Government.

As seen in the UK Ministry of Defence. Examples include the Sea King Integrated Operational Support (SKIOS), Integrated Merlin Operational Support

(IMOS), Availability Transformation Tornado Aircraft and Multi-Role Hydrographic and Oceanographic Survey Vessels contracts.

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Contract term and

condition

Considerations

associated with long-

term contracts

 Economic price adjustment clauses transfer risk from the contractor to the

Government.

Pre-established

contract amendment

procedures

 Pre-established procedures can help identify and affirm the need for

change, assess the impact of potential solutions and expedite amendment

approvals to the contract in order to address unforeseen circumstances

Step-in rights for the

Government to

address the risk of

contractor insolvency

or when the Contractor

(repeatedly) fails to

meet the performance

requirements as

established in the

contract

 Through step-in rights, the Government can step in and have the services

performed by itself or another party, with the costs of this work being at

the expense of the contractor. Refer to Discussion Paper: Measures to

Manage Contractor Non-Compliance or Unacceptable Behaviour which

describes measures to manage a contractor’s non-compliance or

unacceptable behaviour.

Provisions to ensure

Canada’s right to

contract with alternate

suppliers or to self-

perform some or all of

the work at specific

times

 These provisions would generally be applied for well-defined discrete

scopes of work or specific time periods in the contract, or if the contractor

(repeatedly) fails to meet the performance requirements established in the

contract

 Such provisions should, for example, ensure Canada’s access to

background intellectual property and ownership of foreground intellectual

property.

Provisions to allow for

termination of the

contract for

convenience

 Provisions such as termination based on mutual consent can help Canada

to take advantage of, for example, fundamental shifts in the market or in

requirements.

Holdbacks

 Holdbacks provide the Government with means to rectify contract non-

performance.

 Such provisions may further disrupt contract performance, if the

contractor’s cash flow is compromised. This risk may be particularly

material if the contractor is a small or medium enterprise or if the contract

in question is the primary cash flow source for the contractor.

D. What are the leading practices for managing long-term contracts?

Guiding principles

Guiding principles for the effective management of long-term contractual relationships have been common

across comparator jurisdictions and are also observed in some PSPC contracts. These guiding principles

are:

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 Leadership framework. Successful long-term contractual relationships require a supportive

management framework that is flexible and able to respond to changes in priorities. For example, many

long-term relationships in high-value complex acquisitions are overseen by a board comprised of five to

seven senior government and contractor executives who meet on a regular basis to review performance

against pre-established performance standards, consider issues and propose resolution.

The adoption of a consistent strategic relationship management approach, ideally beginning in early

contracting phases, should be incorporated in the contract management framework. For example, as

new contract managers are brought in, the parties would develop a transition plan to help ensure new

personnel understand the background of the relationship between the Government and contractor and

are able to fulfill their responsibilities in a consistent and timely manner.

 Clear contract ownership and governance. The relationship with a contractor begins with the

alignment of contracts with appropriate contract ownership and governance provisions (e.g., rights to

change contract requirements and to direct the contractor) to enable ongoing coordination between the

parties, regular feedback on performance, and timely resolution of disputes in a mutually beneficial

manner

Given the division of responsibility for contract management between PSPC and the end user, effective

collaboration between the contracting authority’s representative and the end user’s technical

representative is a key ingredient for ensuring effective contract management. Depending upon the

scope and complexity of the goods and services being procured, additional parties may be required to

adequately support the long-term relationship. This may include various disciplines, including for example

commercial, financial, legal and policy specialists as well as technical subject matter experts. All such

individuals would participate as part of a multi-disciplinary team, with clear definition of their roles and

responsibilities for overseeing the contract, managing relationships and authorizing change.

A relational charter, or the inclusion of relational terms in a project charter, would be helpful to outline

roles, responsibilities and expectations under a selected contract ownership and governance structure.

 Performance management and communication. A performance management framework, and a

corresponding feedback and communication mechanism, would be established, ideally before contract

initiation.

A framework for the establishment, tracking and reporting of key performance indicators, in conjunction

with provisions, to appropriately redress concerns and reward successes is important: incentive

structures should be calibrated and administered, and contractors should be measured against clear,

objective and meaningful metrics. (Possible examples of performance measures include quality checks,

service standards, and price and cost comparisons.) These key performance measures would be

reviewed, and updated for new requirements if applicable, at least annually. Regular feedback (likely on

a weekly or monthly basis) would be provided to the contractor, and where applicable, they would require

the contractor to develop an improvement plan to redress the noted deficiencies.

Government and contractor employees would be encouraged to communicate problems as soon as

possible. A leading practice is to put an expiry date on problems (claims). If a contractor or the

Government does not raise an issue within a pre-established time of its occurrence, then the relevant

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party forfeits the right to raise the matter at a later date. At the same time, Government and contractor

employees should be mindful that the escalation of issues to management and external parties should

be carefully considered to avoid the perception of political gamesmanship.

Some agencies (e.g., Infrastructure Ontario and the Australian Department of Defence) are establishing

grades for contractors. If the contractor’s performance falls below a pre-established standard, the

contractor would be penalized in the evaluation of future bids for a period of time. Refer to Discussion

Paper: Measures to Manage Contractor Non-Compliance or Unacceptable Behaviour for further details

regarding grading contractor performance.

 Risk management. Clear risk allocation and management help avoid misunderstanding and

miscommunication regarding responsibilities and improve the potential for collaboration between the

Government and the contractor. All identified risks should be assigned to the appropriate owners, and

be documented and monitored in a risk register

. Contingency plans should be prepared and monitored.

The contract manager should report critical risks to the joint leadership team (e.g., governance board)

on a regular basis (typically monthly although more frequent review may be warranted in some

circumstances).

 Information management. A single contract management information system that combines acquisition

and finance requirements would mitigate issues from the distribution of contract information across

disparate systems (e.g., paper-based filing, electronic filing and e-mails) and organizations.

Sharing reliable information between the Government and contractor is particularly important in alliance

contracts and public-private partnerships (e.g., operational and financial information) when the contract

includes gain/pain sharing mechanisms.

 Financial management. The payment mechanism and supporting processes should be defined,

documented and understood by all parties. The contractor’s business and financial performance should

be periodically reviewed to ensure that financial remedies (e.g., warranties, indemnities, insurance and

security) continue to be feasible. Payments, including for performance, should be completed without

unnecessary delays. The relationship between payments and performance should be clearly established

in the contract. Non-compliance or underperformance should invoke liquidated damage and other

consequences as necessary.

 Co-location of Government and contractor teams. Co-locating Government and contractor personnel

could foster collaboration and relationships—a practice that is currently used in Canada for large

procurements. In the United States, the Government had on-site management representation at

contractor plants for the US Fleet Ballistic Missile System contract. This was viewed to be one of the

contributing factors to the success of the program. Co-location is also common in alliance contracts and

public-private partnerships. If co-location is not possible, regularly scheduled visits between Government

and contractor teams could be a good alternative. Frequency of visits would depend upon the duration,

complexity, and risk profile of the project.

A risk register is a component of a risk management plan—identifying and describing risks with respect to probability, impact, allocation of ownership and

treatment approach.

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ISO 44001: Collaborative Business Relationship Management Systems

ISO 44001 is an international standard, recently published by the International Organization for

Standardization, for developing a common enabling platform to develop and sustain positive outcomes in

complex business relationships. The standard provides guidance on the effective identification, development

and management of collaborative business relationships within or between organizations

Many consider the ISO 44001 standard as a framework of leading practices for long-term contractual

relationships.

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ANNEX 5.2 – OTHER ANNEXES

ANNEX 5.2.1 (DISCUSSION PAPER – ASSET VALUATION)

Context

Asset valuation is the process of determining the value of a company's assets, such as buildings, equipment,

brands, goodwill, etc.

This guidance on asset valuation is intended to provide contracting officers with additional information that

may help in understanding the complexities related to asset valuation when working with price advisors or

other specialists engaged to support them in preparing for contract negotiations and in managing a contract

through its lifecycle. Based on the scale and complexity of the acquisition, this requires considerable support

from the contracting team, which may include price advisors, client department representatives and other

subject matter experts.

For contracts where pricing is based on costs, the value attributed to the contractor’s assets has a direct

impact on the calculation of the contractor’s cost (i.e. historical cost or fair market value) and any resulting

profit calculation where asset depreciation expense is a component that is considered. There is a risk that

Canada may not award an appropriate level of profit if the cost of the asset is not representative of its value,

and if the resulting depreciation expense is not accurate.

Recommendation

It is recommended that historical cost be used for establishing the asset cost basis from which to negotiate

the price of a contract.

Use of a Cost Accounting Practices Submission (CAPS) should be considered by contracting officers and/or

price advisors to identify and establish an agreement with the contractor on the accounting methods to be

used to recognize costs. A copy of the CAPS can be obtained at the following address:

https://gcdocs.gc.ca/tpsgc-pwgsc/llisapi.dll?func=ll&objaction=overview&objid=157226238

In the exceptional case, where fair market value might be used as the basis of valuing a contractor’s assets,

a reliable measurement needs to be established and documented to achieve best value for Canada. For

example, if fair market value (replacement cost) can be demonstrated through supportable and verifiable

evidence, the related cost of the asset would be included in the cost base of the contract. The contractor

would calculate depreciation based on replacement cost using methods consistent with those required for

calculating depreciation using historical cost.

Definitions and Considerations

While many asset valuation methods exist, there are three different asset bases that are commonly used to

determine the cost of an asset: historical cost, replacement cost, and opportunity cost. In order to efficiently

determine the acceptability of the contractor’s method for asset valuation, the contractor should provide

Canada access to supporting information for purposes of assessing the contractor’s approach. For example,

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by including access to the appropriate information in the terms and conditions of the bid solicitation. This will

permit the parties to have open and honest discussions regarding cost and risk trade-offs and efficiencies

before finalizing the contract.

Historical Cost (Recommended)

Historical cost represents the actual cash outlay that was made for a particular good or service net of any

rebates and including any costs to delivery, install, etc. This information can generally be found in the financial

statements of contractors that follow Generally Accepted Accounting Principles (GAAP – IFRS/ASPE).

Typically historical cost is used as the basis for establishing contract cost due to its inherent reliability.

Amounts are based on past transactions that can be verified and are generally viewed as a reasonable

indicator of future costs. In addition to its inherent reliability, historical cost also helps ensure that Canada will

not pay more for the use of the asset than the contractor originally paid.

Understanding how the historical cost of the asset was established and whether the depreciation is

attributable, appropriate and reasonable can be complex and may require the use of expert analysis.

Contracting officers may want to consult with price advisors or other experts for this analysis. Examples of

issues to consider include foreign exchange and taxes:

• Foreign exchange that has been hedged by the contractor should follow accounting standards IFRS

for public companies or ASPE 3856

for private companies. Gains or losses resulting from

foreign exchange hedging that are related to the contract may correspondingly be deducted or added

to the cost base. The contracting officer should consult with other members of the procurement team

to determine if foreign exchange amounts should be included in the cost base or not.

• Tax implications associated with assets owned by the contractor include provincial tax amounts that

may or may not be attributable or appropriate to include in the cost base. The contracting officer

should consult with other members of the procurement team to determine if tax amounts should be

included in the cost base or not.

Replacement cost and opportunity cost should only be considered for asset valuation when a supplier would

not be compensated fairly under a historical cost basis. Use of these alternatives should only occur when

they can be supported by a strong business case.

Where circumstances appear to support the use of alternatives other than historical cost, Canada should

also consider an outright purchase of the asset or direct compensation for opportunity cost exposures,

associated with the asset and removing this component from the price negotiations related to the larger

contract. This approach is similar to commodity or contract treatment recommended to address market

uncertainty and commodity and foreign exchange risks.

Replacement Cost

IFRS 9 – Financial Instruments, https://www.iasplus.com/en/standards/ifrs/ifrs9

ASPE Section 3856 - Financial instruments, https://www.iasplus.com/en-ca/standards/part-ii-aspe/broad-topics/section-3856-

financial-instruments

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Replacement cost is a method to determine fair market value and represents the cost required to duplicate

a particular good or service under current market conditions. Replacement costs can show the changing

market dynamics and better reflect current market cost of goods, labour, overhead, etc. and may, in rare

instances, be a reasonable value to be included in the cost basis on which to negotiate the price of a contract.

When replacement cost is used as the basis of valuing a contractor’s assets, the cost needs to be assessed

against the overall value to Canada including: economic, social, security, and other factors.

Measurement is a key risk of using replacement cost. It is less verifiable than historical cost and relies on

either comparable, relevant market value transactions of similar assets, or on the expertise of a professional

valuator. It is important to consider the basis on which the replacement cost is determined and to ensure that

any payments made for Canada’s use of contractor assets above the historical cost are appropriate and

required to maximize value for Canadians.

Where judgment is involved in determining asset values, care needs to be exercised, including the following

considerations:

 If experts are involved, assurances are required that they are independent and no conflict of interests

exists in their relationship with the contractor,

 Experts are duly accredited and in good professional standing.

 If benchmarks such as property values are used, they should match the asset and approximate the

asset’s location. For example:

o Matching – The asset is valued as though it is newly constructed, when the asset is not new;

o Location – Use of out-of-market proxies, while similar facilities are selected, with rents

referenced are as found in downtown Toronto, but the asset’s location is Pickering.

It is important to consider whether the original cost of the asset was paid for by the government previously

as this may impact the contract to be negotiated for subsequent goods or services to Canada.

Opportunity Cost

Opportunity cost occurs when the contractor has alternative uses for the asset for which the market might

pay a significant premium. As a result of the significant difference between the current value of the asset and

its historical cost, the contractor may be faced with a large opportunity cost if the contractor is to continue

using the asset to deliver a contract for the government and forego the sale of it.

Opportunity cost is not generally recommended as a basis for asset valuation because it can be extremely

subjective. The process involves identifying appropriate alternative uses for an asset and requires

calculations of the expected value of future transactions. Verification for these factors may, in many cases,

not be possible because reliable sources of supporting data may not exist.

A contractor taking the position that a business opportunity exists that would generate greater profit than the

contract with Canada would not necessarily be considered as relevant given that the contractor has already

chosen to forego that opportunity by entering into a contracting process with Canada. Negotiating a cost

basis for contract pricing based on assertions by a contractor that they ‘could but won’t’ engage in a more

profitable business alternative would likely lead to a less than desirable result for Canada.

266 | Page Public Services and Procurement Canada September 30, 2019

Appendix A

Current Asset Valuation Guidance in Comparator Jurisdictions

The United Kingdom Single Source Regulations Office (SSRO) uses a principles based framework and allows

practitioners to exercise professional judgment in determining whether a particular cost basis is appropriate.

As a result, there is not clear direction provided on what cost basis should be used to determine the price of

the goods or services procured. The guidance specifically allows costs to be charged to the public sector

procurement authority if they are deemed to be appropriate, attributable, and reasonable by the reviewing

practitioner.

The costs should also be supported by adequate and sufficient evidence, assigned to contracts

only once, and are recorded and reflected in the books of account.

Re-evaluations of assets are permissible

but have to be agreed by the Secretary of State if they are to be Allowable.

The United States principles are more prescriptive, but do not specifically identify which cost basis is

appropriate. Under the Unites States Federal Acquisition Regulation, costs are allowable only when they are

reasonable, allocable, in accordance with standards promulgated by the Cost Accounting Standards Board

or generally accepted accounting principles, and the terms of the contract.

Article 31.202-2 (c) specifically

states that when “contractor accounting practices are inconsistent with this subpart 31.2, costs resulting from

such inconsistent practices in excess of the amount that would have resulted from using practices consistent

with this subpart are unallowable”.

Most specifically this would include replacement and opportunity costs

not being allowable consistent with the United Kingdom. Therefore, historical costs would be deemed to be

appropriate cost basis under the United States guidance as well.

Australia’s Department of Defence Capability Acquisition and Sustainment Group is very similar to the United

Kingdom in that it is principles based and allows for judgment to be exercised. It does not specifically identify

what cost basis should be used, but again suggests that the contractor’s accounting system for identifying

the contract cost should be “based on sound accounting principles, appropriate for the purpose of the

contract, and internal control practices, consistently applied”.

Therefore, similar to the guidance identified

above from the United Kingdom and United States, a contractor’s use of cost basis depends on what is

specifically authorized in Australian Government-Department of Defence-Capability Acquisition and

Sustainment Group, Capability Acquisition & Sustainment Group Cost Principles accounting standards. As

Single Source Regulations Office, Single source cost standards-Statutory guidance on Allowable Costs, July 2016,

http://www.metasums.co.uk/uploads/asset_file/Allowable%20Costs%20guidance%20for%20qualifying%20contracts%20awarded

%20after%201%20July%202016.pdf>, accessed August 14, 2017.

Ibid.

United States General Services Administration Federal Government, Federal Acquisition Regulations, August 17, 2007,

https://www.acquisition.gov/sites/default/files/current/far/pdf/FAR.pdf, accessed August 14, 2017.

Ibid.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Capability Acquisition &

Sustainment Group Cost Principles, September 2015,

http://www.defence.gov.au/casg/Multimedia/CASG_Cost_Principles_(Sep_2015)-9-4057.pdf>, accessed August 14, 2017.

CAGS Revised to v2.0 October 2017 http://www.defence.gov.au/casg/Multimedia/CASG_Cost_Principles-9-8642.pdf. Accessed

March 24, 2018

267 | Page Public Services and Procurement Canada September 30, 2019

identified above, the historical basis of cost recognition is supported by the International Financial Reporting

Standards (IFRS), and the replacement cost and opportunity cost basis of valuation are not permitted.

268 | Page Public Services and Procurement Canada September 30, 2019

ANNEX 5.2.2 (DISCUSSION PAPER – TRANSFER PRICING)

Context

This guidance on transfer pricing is intended to help inform contracting officers, to prepare for contract

negotiations and manage the contract through its lifecycle. Based on the scale and complexity of the

acquisition, this may require considerable support from the contracting team, which could include price

advisors, client department representatives and other subject matter experts.

Transfer pricing refers to the prices set for goods or services that are exchanged among related parties

(affiliated or entities under common control, joint control or significant influence). The “Transfer Price” is the

price at which a supplier sells its goods or services to a related party buyer.

This document provides information to help contracting officers identify whether the final cost of a procured

good or service is valued fairly in situations where the goods or services may have been exchanged through

several transactions among related parties, and to help mitigate the risk of profit overpayment by Canada.

Transfer pricing policies and practices are typically used to determine the price of a good or service

transferred between related parties (entities under common control, joint control or significant influence). The

appropriateness of transfer pricing practices should also be extended to consortium or subcontractor

arrangements where significant influence over pricing may exist between the parties, even if the entities

involved would not otherwise be considered as related.

For government contracts, the final costs of a procured good or service may be a derivative of transfer prices,

particularly when the procured good or service has progressed through a supply chain involving multiple

related parties.

A simplified example of a transfer pricing arrangement for a contractor selling equipment to the Government

is depicted below. The example, including amounts and transfer price and contract price calculations, are for

illustrative purposes only.

269 | Page Public Services and Procurement Canada September 30, 2019

Exhibit 1 - Example of a Transfer Pricing Arrangement

Related Party 1 – Raw

Material Supplier (e.g.

unprocessed minerals,

refined metals, etc.)

Cost Incurred: $110M

Transfer Price: $120M

Related Party 2 –

Manufacturer (e.g.

processed and semi-

finished materials, etc.)

Price Paid for Raw Materials: $120M

Additional Cost Incurred: $200M

Total Cost Incurred: $320M

Transfer Price: $380M

Prime Contractor –

Original Equipment

Manufacturer (e.g. aircraft,

tanks, etc.)

Price Paid for Processed Metals: $380M

Additional Cost Incurred: $420M

Total Cost Incurred: $800M

Final Contract Price: $900M

Value Added

The following table further illustrates how to calculate the reasonable profit for the above scenario:

When costs and profits are considered from the perspective of only the Prime Contractor, it may

appear that the total cost and profit incurred for the equipment are $800M and $100M

respectively. However, when costs and profits are considered from the perspective of the entire

supply chain, the total cumulative cost and profit incurred are in substance actually $730M and

$170M, respectively. $70M

of profit has already been incurred due to the transfer price

amounts established by Related Party 1 and Related Party 2.

$70M = [$120M-$110M]+[$380M-$320M] or $10M+$60M

Related Party

Transactions

Cost

Additional cost

(by each related

party)

Total

cost

Profit

Transfer price

Profit

additional

cost only

A+B

A+B*(1+C)

B*C

Related party 1

N/A

110

9.09%

120

Related party 2

120

200

320

30%

380

Prime

contractor

380

420

800

23.81

900

100

Totals

730

900

170

270 | Page Public Services and Procurement Canada September 30, 2019

In reality, the above supply chain for the purchased equipment could be much more complex and might

involve several additional parties (internal divisions or subcontractors). When the supply chain of a procured

good or service is complex, there is risk that the final costs, and correspondingly the final price, of the

procured good or service could be unreasonable if the transfer price charged at a particular stage of the

supply chain does not align with the value added to the procured good or service.

Recommendation

• The transfer prices used to derive the final costs

of a purchased good or service should be

reasonable.

• To be reasonable, transfer price amounts should align with the value

added to the procured good

or service by the respective related parties. In alignment with the Organization for Economic Co-

operation and Development (OECD) Transfer Pricing Guidelines for Multinational Enterprises and

Tax Administrations 2017

, the amount of value added by a related party to the procured good or

service, should be assessed based on the related party’s functions performed, assets employed,

and risks assumed in respect to the good or service.

• Furthermore, contracting officers should assess the total cumulative profit incurred during the supply

chain (i.e. between related parties) of a procured good or service to determine if the respective final

cost is reasonable.

• The use of a Cost Accounting Practices Submission to identify and establish an agreement with the

contractor on accounting methods to be used for transfer pricing should be considered in consultation

with the Procurement Support Services Sector.

The proposed recommendation aligns with one of the objectives of the OECD's Base Erosion and Profit

Shifting (BEPS) project, and transfer pricing legislation

that CRA adopts, which is to develop transfer

pricing guidelines that align transfer pricing outcomes with value creation.

The contracting officer must ensure that these costs first meet the criteria of Attributable and Appropriate.

Value added should be considered from the perspective of value provided to Canada.

Organization for Economic Co-operation and Development, OECD Transfer Pricing Guidelines for Multinational Enterprises

and Tax Administrations 2017, July 2017, http://www.keepeek.com/Digital-Asset-Management/oecd/taxation/oecd-transfer-

pricing-guidelines-for-multinational-enterprises-and-tax-administrations-2017_tpg-2017-en#.WZ2Y8cLfOUk#page36, Accessed

23 August 2017.

Transfer Pricing, Government of Canada, https://www.canada.ca/en/revenue-agency/services/tax/international-non-

residents/information-been-moved/transfer-pricing.html

Base Erosion and Profit Shifting. OECD. October 2017. https://www.oecd.org/ctp/transfer-pricing/Compilation-revised-

guidance-profit-splits-2017.pdf. Accessed 1 March 2018.

271 | Page Public Services and Procurement Canada September 30, 2019

Application

Assessing if Transfer Prices are Reasonable

Importance of the Procured Good/Service Value Chain When Assessing Reasonability

Application of the above Recommendations requires that transactions occur under arm’s length terms and

conditions. The arm’s length principle is designed to prevent income shifting. This differs from the concept of

fair market value, which is intended to convey the value of assets and liabilities based on a hypothetical

market.

In order to assess if transfer price(s) are reasonable, the procurement team will need to understand the value

chain, the set of activities that generate value for the procured good or service, and how each related party

contributes to this value. In accordance with OECD guidelines, value can be based on the significance of:

• The functions performed by the related party (e.g. manufacturing, research and development,

administration, sales and distribution, etc.);

• The assets employed by the related party (production equipment & machinery, patents, office

equipment, etc.); and

• The risks assumed by the related party (credit risk, market risk, product/service liability risk,

technology risk, etc.).

Based on the above factors, if it is determined that the related party does not contribute significant value to

the procured good or service, it would be expected the transfer price established by the related party is not

much higher than the total cost incurred by that related party.

For example, for the purchased equipment, as per Exhibit 1 in the Context section, it is reasonable to assume

that the transfer price profit percentage (in relation to total cost incurred) charged by the raw material supplier

(i.e. Related Party 1) would be less than the profit percentage charged by the manufacturer (i.e. Related

Party 2).

Consideration should be given for including documentary support for transfer pricing as part of the contractual

requirements. For example, the documentary support required by the Canada Revenue Agency (CRA)

and

identified in subsection 247(4) of the Income Tax Act includes:

• The terms and conditions of the transaction and their relationship, if any, to the terms and conditions

of each other transaction entered into between the participants in the transaction

• The identity of the participants in the transaction and their relationship to each other at the time the

transaction was entered into

• The functions performed, the property used or contributed and the risks assumed, in respect of the

transaction, by the participants in the transaction

https://www.canada.ca/en/revenue-agency/services/tax/international-non-residents/information-been-moved/transfer-

pricing/09.html#ContemporaneousDocumentationUnderSubsection2474

272 | Page Public Services and Procurement Canada September 30, 2019

• The data and methods considered and the analysis performed to determine the transfer prices or the

allocation of profits or losses or contributions to costs, as the case may be, in respect of the

transaction and

• The assumptions, strategies and policies, if any, that influenced the determination of the transfer

prices or the allocation of profits or losses or contributions to costs, as the case may be, in respect

of the transaction

Monitoring Cumulative Profit to Assess Reasonability

Contracting officers should assess and analyze the total cumulative profit incurred throughout the supply

chain (i.e. between all related parties) of a procured good or service using the profit percentage to determine

if the respective final cost is reasonable. This profit percentage should be calculated before a contract profit

rate is applied to the final cost. For example, as per Exhibit 1 in the Context section, the profit percentage

incorporated in the final cost would be equal to 9.6% (Profit [$70M] / Cost [$730M]).

Considerations for assessing whether this profit percentage is reasonable include:

• Monitoring if there are any material variations in the respective profit percentage for the good or

service provided during the period of the contract; and/or

• Comparing the profit percentage for the supply chain (i.e. between related parties) of the good or

service to available and relevant benchmark information (e.g. industry, similar contracts, etc.)

• Contracting officers should consider this profit percentage when determining the appropriate contract

profit rate to apply to the final cost.

To monitor the total cumulative profit incurred during the supply chain of a procured good or service, open

access to certain company documentation is required. Examples of documentation to consider for review are

described further in the Information to Review when Assessing the Reasonability section.

Risks to Consider when Assessing Reasonability

When assessing if transfer prices are reasonable, the procurement team should be aware of the below risks:

• Intra-company transfer prices may include a profit component by a division to assess divisional

performance. There is a risk that transfer prices may be inflated when the performance objectives of

a division do not align with the performance objectives of the whole organization (e.g. a division is

evaluated based only on its own profits). Ensure that any intra-company profits included do not result

in an overstatement of costs beyond what would be reasonable in an arms-length transaction.

• Inter-company transfer prices may be manipulated for tax avoidance purposes or to artificially inflate

prices and resulting profits. For example, if a contractor has a subsidiary in a low tax rate country,

there exists the risk that the subsidiary will charge an inflated transfer price to the contractor for tax

avoidance purposes. It should be noted that there are tax regulations in place to mitigate this from

occurring.

273 | Page Public Services and Procurement Canada September 30, 2019

Information to Review when Assessing the Reasonability

In assessing if the final costs of a procured good or service, which are a derivative of transfer prices, are

reasonable, the following information should be considered for review.

Information to Review

Considerations

• Contractor’s policy and documentation

on inter-company and intra-company

transactions and transfer prices.

• Consistency of the company’s stated policies and

financial records used for other purposes (e.g.,

audited financial statements).

• Contractor, and related party, contracts

and invoices for similar goods or

services provided to other customers

(both government and non-government).

• The transfer prices charged in a sample

of other contracts (e.g. with value chain

activities of a similar nature).

• Consistency in the application of the proposed

transfer pricing method with the price charged to

other customers, with appropriate consideration of

any differences in the requirements or risk

associated with the contracts.

• Supporting documentation showing

build-up of price and underlying costs.

• Confirmation that the proposed transfer price has

been calculated in accordance with the contractor’s

transfer pricing policy

• Confirmation that the related parties’ costs are in

compliance with Canada’s Cost and Profit Policy

• Tax returns filed with the tax

administration containing transfer prices

• Conformation that the transfer price for tax purposes

are aligned with the Organization for Economic Co-

operation and Development (OECD) or Canada

Revenue Agency (CRA) Transfer Pricing Guidelines

Note that open access to company documentation is required to determine if transfer prices are

reasonable.

274 | Page Public Services and Procurement Canada September 30, 2019

Appendix A

Current Transfer Pricing Guidance in Comparator Jurisdictions

Australia: Transfer pricing must comply with applicable tax rules. All documentation held by the contractor

for tax regulation purposes must be made available to the Government for review should the documentation

be requested.

United States: The transfer price shall be the cost incurred with allowances being made for price when it is

an established practice of the transferring organization and the contracting office has not determined the

price to be unreasonable.

United Kingdom: The Single Source Regulations Office (SSRO) does not provide explicit guidance on

transfer pricing. However, it’s Guidance on the Baseline Profit Rate and its Adjustment contains a profit on

cost once adjustment (POCO) clause.

The adjustment ensures that if a party to a qualifying defence

contract enters into a single source subcontract with another group member, and this group subcontract is

necessary to enable the performance of the qualifying defence contract, then profit arises only once in relation

to allowable costs included in the group subcontract price.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Capability Acquisition &

Sustainment Group Cost Principles, October 2017, http://www.defence.gov.au/casg/Multimedia/CASG_Cost_Principles-9-

8642.pdf, Accessed 1 March 2018.

United States General Services Administration Federal Government, Federal Acquisition Regulations, 17 August 2007,

https://www.acquisition.gov/sites/default/files/current/far/pdf/FAR.pdf, Accessed 23 August 2017.

Guidance on the Baseline Profit Rate and its Adjustment. SSRO, 15 March 2017,

https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/599881/SSRO_Guidance_on_the_baseline_profit_

rate_and_its_adjustment_2017-18.pdf. Accessed October 26, 2017.

275 | Page Public Services and Procurement Canada September 30, 2019

ANNEX 5.2.3 (DISCUSSION PAPER – PRODUCTION CAPACITY AND INDIRECT COSTS

ALLOCATION)

Context

This guidance is intended to provide contracting officers with additional information that may help in

understanding the complexities related to the methods available for the allocation of indirect costs when

working with price advisors or other specialists engaged to support them in preparing for contract negotiations

and in managing a contract through its lifecycle.

This discussion paper is not intended to be a procedural document. Based on the scale and complexity of

the acquisition, considerable support might be required from the contracting team, which may include price

advisors, client department representatives and other subject matter experts. Contracting officers are

encouraged to consult with the Procurement Support Services Sector (PSSS).

Definitions

Production capacity (“capacity”) represents the volume of activity (e.g. labour hours, machine hours) a

contractor’s resources (e.g. labour, equipment, etc.) can sustain in order to produce goods over a specified

time period.

These resources will generally have indirect costs, such as, but not limited to, salaries (i.e. for labour) or

depreciation (i.e. for equipment), associated with them. These associated indirect costs can be allocated to

a contract, if they meet the prerequisite conditions of being attributable, appropriate, and reasonable

, using

either an estimated indirect cost rate or the actual indirect costs incurred. Estimated indirect cost rates are

determined by dividing the estimated total indirect costs associated with the respective resources by the

capacity of those resources.

In a production (“manufacturing”) setting, there are four main capacity basis types that can be used to allocate

indirect costs.

1 Theoretical capacity: the maximum volume of activity that can be attained by a contractor’s resources

(e.g. labour, equipment, etc.), over a specified time period, that does not allow for any normal idle time

(e.g. maintenance on equipment, employee vacations, etc.).

2 Practical capacity: the maximum volume of activity that can realistically be attained and sustained by a

contractor’s resources that allows for normal idle time (theoretical capacity minus normal idle time).

3 Normal capacity: the forecasted volume of activity expected to be achieved by a contractor’s resources,

to satisfy average customer demand for contractor goods, over a number of periods (e.g. 3-5 years)

under normal circumstances, taking into account seasonal, cyclical, and trend factors.

Further clarification on the prerequisite conditions of the attributable, appropriate, and reasonable criteria is provided in the

Allocating Direct and Indirect Costs section of the Costing Standard.

Brierley, John A, et al. Reasons for Adopting Different Capacity Levels in the Denominator of Overhead Rates. 2006,

cmawebline.org/images/stories/JAMAR%202006%20Summer/JAMAR-v4-2-Reasons%20for%20Adopting.pdf. Accessed Sept.

2017.

276 | Page Public Services and Procurement Canada September 30, 2019

4 Budgeted capacity: the anticipated volume of activity expected to be achieved by a contractor’s

resources, to satisfy customer demand for contractor goods, for the upcoming period (e.g. upcoming

year).

The first two types are measures of supply of capacity, while the last two types are measures of demand for

capacity. Refer to Appendix A. Measuring Capacity for details on how to measure the amount of supply and

demand for capacity of a contractor.

Excess capacity can be defined as the supply of capacity minus actual capacity utilized by the contractor to

fulfil demand.

Recommendation

In establishing overhead rates or burden for the purposes of contract pricing, practical capacity of a

contractor’s resources should be used as the base for allocating indirect costs because it provides the most

accurate representation of the cost of capacity used.

1. For contracts using a cost reimbursable basis of payment, contract pricing can be established using

allocable estimated or actual indirect costs;

 Where contract pricing is based on the allocation of actual indirect costs, the process for

establishing any preliminary overhead rates and adjusting these rates for actual indirect costs

must be defined in the contract terms.

 Where contract pricing is based on the allocation of estimated indirect costs, the estimated

overhead rates and, if applicable, any process for amending overhead rates on a periodic basis,

needs to be included in the contract terms.

2. The use of a Cost Accounting Practices Submission to identify and establish an agreement with the

contractor on accounting methods to be used for indirect cost allocations should be considered in

consultation with the Procurement Support Services Sector.

The use of practical capacity motivates the contractor to manage production capacity so as to avoid or

minimize un-allocable indirect costs associated with excess or idle capacity.

277 | Page Public Services and Procurement Canada September 30, 2019

Application

Consider the below simplified calculation for clarity on how an indirect cost rate is determined.

A. Capacity of Resources

1,000 hours

B. Indirect Costs for Resources

$10,000

C. Indirect Cost Rate

$10/hour (B / A = $10,000 / 1,000)

The capacity of resources may be measured by the supply of capacity of the resources or the demand for

capacity of the resources. Ideally, a contractor’s supply of and demand for capacity should be:

 determined using the same measurement basis (“capacity bases” or “capacity basis types”);

 equal in order to avoid excess capacity; and

 simple to forecast (i.e. to calculate an accurate estimated indirect cost rate).

Based on the above premises, the indirect cost rates calculated using supply of capacity and demand for

capacity would be identical and accurate. However, as explained in this paper:

 different measurement bases are used in practise to determine supply of capacity and demand for

capacity;

 achieving equilibrium between supply of and demand for capacity is difficult and sometimes not feasible,

resulting in the incurrence of excess capacity costs for the contractor’s respective resources; and

 forecasting supply of and demand for capacity is not simple.

Considering this, the amount of indirect costs allocated to a contract can vary depending on:

• the capacity basis type used to calculate the indirect cost rate; and

• whether the estimated indirect costs allocated to the contract are adjusted to reflect updated or actual

data points.

Example 1 – Purchase of Produced Goods

Canada has a cost reimbursable contract with a contractor to produce 500 units of armoured vehicle tires

over 2 years. Indirect labour costs are to be allocated to the contract based on the practical capacity of direct

labour hours. The contractor estimates that it will incur $100,000 of estimated indirect labour costs and that

each unit will require 10 direct labour hours to produce. Practical capacity was determined to be 10,000 direct

labour hours. After validation exercises, actual indirect costs were determined to be $90,000 and it took 10

direct labour hours to produce each unit.

278 | Page Public Services and Procurement Canada September 30, 2019

Number of units produced

500

Direct labour hours/unit

Practical capacity (direct labour hours)

10,000

Estimated indirect costs

$100,000

Actual indirect costs

$90,000

Based on data given above:

1. If Canada agreed that contract pricing would be based on the allocation of estimated indirect costs, the

overhead rate and allocated indirect costs would be as follows:

• Estimated overhead rate = Estimated total indirect costs / Practical capacity

• Estimated overhead rate = 100,000 / 10,000

• Estimated overhead rate = $10/hour

• Allocated indirect costs = Units produced * Direct labour hours/Unit * $/Direct labour hour

• Allocated indirect costs = 500 * 10 * 10

• Allocated indirect costs = $50,000

A periodic review and if applicable, an amendment, of overhead rates should be considered.

2. If Canada agreed that contract pricing would be based on the allocation of actual indirect costs, the initial

overhead rate would be based on the above estimates and an adjustment could be made for actual

indirect costs after year end.

• Allocated indirect costs would initially be $50,000 as above.

Actual indirect costs would be allocated as follows:

• Actual overhead rate = Actual total indirect costs / Practical capacity

• Actual overhead rate = 90,000 / 10,000

• Actual overhead rate = $9/direct labour hour

• Allocated indirect costs = Units produced * Direct labour hours/Unit * $/Direct labour hour

• Allocated indirect costs = 500 * 10 * 9

• Allocated indirect costs = $45,000

279 | Page Public Services and Procurement Canada September 30, 2019

An adjustment of $5,000 would be made to reflect pricing based on the allocation of actual indirect costs.

Example 2 – Purchase of Produced Goods and Standby Capacity

There are exceptional situations when Canada may specifically create a contract for standby capacity. In

these cases, Canada is compensating the contractor for indirect costs such as overhead and maintenance

to keep production facilities open and available to exclusively produce goods for Canada. The cost for

standby capacity is an additional and separate cost from the cost of goods that Canada would normally

purchase from the contractor.

The following example demonstrates the application of allocating indirect costs based on practical capacity

and applying the overhead rate to determine costs associated with capacity utilised and standby capacity:

Canada formed a contract with Company X to purchase 500,000 flu vaccines per year for the next 5 years.

Each batch of 500 vaccines takes one (1) machine hour to complete. The contractor’s practical capacity was

determined to be 1,600 machine hours. The allocable indirect costs associated with producing the vaccines

at practical capacity is $400,000. Canada has agreed to pay for indirect costs associated with standby

capacity to ensure a sovereign supply of vaccines at practical capacity, if and when needed. Company X has

a separate contract with a private organization that requires 200,000 flu vaccines per year for the next five

years. The following table summarizes data relevant to this example for the first year:

Practical Capacity

1,600 machine hours

Capacity Utilised by Canada (500,000 / 500)

1,000 machine hours

Capacity Used for Private Contract (200,000 / 500)

400 machine hours

Standby Capacity (1,600 – 1,000 – 400)

200 machine hours

Estimated Total Indirect Costs to Produce Vaccines at

Practical Capacity

$400,000

Canada has agreed that direct labour and material will be burdened using an overhead rate based on

estimated total indirect costs over practical capacity. Therefore, the overhead rate is:

 $400,000 / 1,600 = $250/machine hour

The indirect costs charged to direct labour and materials for producing 500,000 flu vaccines for Canada is

$250,000, calculated as:

 $250 * 1,000 = $250,000

Standby capacity represents capacity that is not currently being used for sales to Canada or other customers

(200 machine hours). Indirect costs associated with standby capacity is still calculated based practical

capacity. Thus, the overhead rate remains the same, which results in a standby capacity cost of $50,000,

calculated as:

 $250 * 200 = $50,000

As Canada has agreed to pay for any standby capacity for a sovereign supply of vaccines, the above standby

capacity cost of $50,000 could be claimed separately by the contractor under the terms of the contract.

280 | Page Public Services and Procurement Canada September 30, 2019

This example demonstrates how indirect costs should be allocated based on practical capacity to determine

an overhead rate to apply to capacity utilised and standby capacity. Note that the sum of indirect costs

associated with capacity utilised by all customers and standby capacity is the same as when Company X’s

production facility is producing at practical capacity.

Example 3 – Purchase of Services

The concepts in this discussion paper can be equally applied to contracts for services such as consulting,

accounting, and maintenance. The following example illustrates the use of practical capacity to establish an

overhead rate for a service contract.

Department of National Defence has availed the use of services by a contractor specializing in repair and

overhaul of Light Armored Vehicles (LAVs). The annual number of labour hours required by DND is 580 direct

labour hours. The contractor’s annual total available practical capacity is 600 direct labour hours. Total annual

estimated indirect costs are $75,000. The contracting officer decided to use estimated costs to determine the

overhead rates.

The following table summarizes data relevant to this example:

Practical Capacity

600 direct labour hours

Capacity Utilised

580 direct labour hours

Total annual estimated indirect costs to provide

repair and overhaul services

$75,000

Using practical capacity as a base, the overhead rate should be:

 75,000 / 600 = $125/hour

Thus, the indirect costs charged to the contract for providing 580 direct labour hours of repair and overhaul

services is calculated as:

 $125 * 580 = $72,500

This example demonstrates how indirect costs should be allocated using practical capacity to determine an

overhead rate that is applied to capacity utilized in a service arrangement. The underlying application is the

same regardless of nature of contract – i.e. services or goods.

281 | Page Public Services and Procurement Canada September 30, 2019

Considerations for Practical Capacity

Forecasting Practical Capacity

A contractor will be required to forecast its practical capacity when the contract in question requires the use

of an estimated rate to allocate indirect costs. Contracting officers should be aware that forecasting practical

capacity is challenging due to the uncertainty of the below factors

1 The forecasted demand for the contractor’s goods. There may exist uncertainty surrounding the

impact of seasonal, cyclical, and trend factors (e.g. future economic conditions), on forecasted demand

for goods. Furthermore, there may exist uncertainty around the scope and the number of goods required

by a contractor’s existing or prospective customers. Such circumstances will make accurately estimating

forecasted demand for capacity, and correspondingly forecasted practical capacity, difficult.

2 The future requirement for contractor excess capacity as a result of customer needs. A contractor

may incur excess capacity as a result of customer needs. The requirements for excess capacity can be

uncertain, making it difficult to accurately estimate forecasted practical capacity.

3 The contractor’s future resource mix. A contractor’s practical capacity will vary with the mix of

resource types used by the contractor. For example, a contractor may shift its reliance from primarily

labour resource types to automated equipment. Such a change would have an effect on both the amount

of demand for capacity and practical capacity of a contractor. Furthermore, the feasibility and sensibility

for a contractor to adjust its practical capacity levels, to match demand for capacity, on a short-term basis,

will vary with the mix of resources types and the resourcing model used by the contractor.

4 The future efficiency of the contractor’s existing resources. A contractor’s demand for capacity will

vary with the efficiency of its resources. Resource efficiency of a contractor’s existing resources can

increase due to changes such as, but not limited to, labour learning curve effects, production process

improvement, and equipment upgrades. For example, a contracted project may take 10% less time to

complete than estimated due to learning curve effects realized by the contractor’s employees.

Conversely, efficiency can decline due to reduced employee morale, outdated production processes and

aging equipment. Such resource efficiency changes, and corresponding capacity impacts, can be

uncertain, making it difficult to accurately estimate forecasted practical capacity.

Evidently, developing an accurate estimate of a contractor’s practical capacity can be challenging due to the

uncertainty of the above factors. The above factors can also have a significant impact for the contractor on

the amount of indirect costs incurred, the amount of goods produced, and the amount of resource capacity

used per good produced.

Supportability and Verifiability of Practical Capacity

The contractor’s reported practical capacity amount should be supported by proper evidence including, but

not limited to, documentation, data, assumptions, and supporting calculations. It is important for the

It should be noted that this list of factors is not necessarily inclusive. Internal contractor policy, external regulatory, and other

factors could also impact the forecast of contractor practical capacity. For purposes of this discussion paper, this list

encompasses the significant/frequent factors that may the forecast of contractor practical capacity.

282 | Page Public Services and Procurement Canada September 30, 2019

contracting officer to verify that the practical capacity amount, used to determine the corresponding indirect

cost rate, is traceable to this evidence and is accurate. If the contractor’s practical capacity amount is not

traceable and accurate, and subsequently misstated, the indirect costs allocated to a contract may not be

reasonable.

In order to verify the practical capacity amount, the contracting officer should:

 Review contractor supporting evidence; and

 Assess the contractor’s reported practical capacity amount against sources of comparator

information including historical data, industry information, equipment information, labor regulations,

and others.

 Consider the involvement of an expert (e.g. price advisor or auditor) from the Procurement Support

Services Sector (PSSS) to assist in verification of reported practical capacity.

Note that open access to certain company information may be required to verify the practical capacity

amount. The contracting authority should ensure that appropriate open book or appropriate audit clauses

are included in the final contractual agreement as well as any subsequent changes made to the contract

terms.

283 | Page Public Services and Procurement Canada September 30, 2019

ANNEX 5.2.4 (DISCUSSION PAPER - RESEARCH AND DEVELOPMENT COSTS)

Context

This document provides guidance to contracting officers and contractors on costs acceptable to Canada,

when price or the assessment of contract performance depend on costs.

This guidance on research and development is intended to help inform practitioners in preparation for contract

negotiations and the management the contract through its lifecycle. Based on the scale and complexity of

the acquisition, this may require considerable support from the contracting team, which may include price

advisors, client department representatives and other subject matter experts.

Research and development (R&D) refers to the part of a company's operations that seeks knowledge to

develop, design and enhance that company's products, services, technologies or processes. Along with

creating new and innovative products and adding features to old ones, R&D connects various parts of a

company's strategy and business plan … such as the possibility for increased productivity or new product

lines.

Contract Cost Principles, SACC 1031-2, identifies R&D activities applicable to Canadian Government

contracts. These are general research and development activities and product development or improvement

activities associated with the product being acquired.

Associated costs are assessed for the reasonableness, as judged by the merit of the investments relative to

what is valued by the “customer”, including expected net-benefit and impact on the affordability of the

underlying government programs. Acceptance is contingent on expected benefits being aligned with what is

valued, as defined by the customer in conjunction with PSPC officials.

PSPC analysis should quantify the financial impact on Canadian Government Programs when contractor

investments in R&D activities are significant and should be evident in the sourcing and procurement strategy

documents.

Recommendation

In alignment with the contract cost acceptability criteria outlined in the Costing Standard, research and

development costs should be accepted for a contract when the costs are Attributable, Appropriate, and

Reasonable.

Assessing if research and development costs are acceptable for a Government contract is difficult because:

 Research and development activities may not always be successful or result in measurable benefits;

https://www.investopedia.com/ask/answers/043015/what-are-benefits-research-and-development-company.asp

284 | Page Public Services and Procurement Canada September 30, 2019

 The amount of time required to conduct research and development activities can be uncertain – thus

creating uncertainty around when corresponding potential benefits may be realized; and

 The inclusion of research and development costs in a contract may be viewed as an unfair subsidy

or duplicating compensation already available through other government programs or Canada’s

income tax regime.

Such factors need to be considered when determining the amount of research and development costs for:

 Canada’s share of R&D investments to be recovered through the pricing of its contracts with the

contractor; or,

 The contractor’s investment targets, as defined by the contractor’s performance objectives.

The contract should clearly explain:

 the applicability of any research and development costs;

 any limits on amounts to be recovered through Canada’s contracts;

 the agreement on acceptable accounting methods to capture financial data and to report on R&D

activities; and

 validation requirements to ensure the reliability and integrity of the contractor’s accounting of its

investments and Canada’s share.

The Cost Accounting Practices Submission (CAPS) is recommended to identify and establish an agreement

with the contractor on the acceptable R&D investments, associated limits and accounting methods to be used

to capture and report on the contractor’s incurred research and development costs.

Application

As detailed in the Costing Standard, research and development (R&D) activities are classified in two distinct

categories:

1. General Research and Development – “a planned investigation undertaken with the hope of

gaining new scientific or technical knowledge and understanding. Such investigation may, or may

not be directed towards a specific practical aim or application”

An example of a general research and development activity could be improving current production

functions such as plant layout, production scheduling and control, methods and job analysis,

equipment capabilities and capacities, inspection techniques, and tooling analysis.

2. Product Development and/or Improvement – “a systematic program of work, going beyond basic

and applied research, which is directed towards the creation of a new or improved product, system,

component or material, substantially in a marketable form, but excluding any manufacture beyond

completion of the new and improved product's prototype.”

285 | Page Public Services and Procurement Canada September 30, 2019

An example of product development and improvement could be the design of new or improved materials for

a specific good.

Research and development costs may be an aggregate of other costs (e.g. compensation costs, rework

costs, etc.). Therefore, when assessing the acceptability of research and development costs, the criteria of

Attributable, Appropriate, and Reasonable should also be assessed for the respective aggregate costs.

When assessing the criterion of Attributable, below are some key factors to consider.

• Are the research and development costs supportable and verifiable?

• Do the research and development costs contribute to the achievement of:

 Contract specific requirements;

 Strategic contract outcomes; or

 Financial, schedule, and quality benefits for the contracts that the Government has with the

respective contractor?

When assessing the criterion of Appropriate, below are two key factors to consider:

• Are the nature of the research and development costs consistent with available sources of

comparator information?

• Is the reimbursement of the research and development costs, as it pertains to the impact on fairness

and equity for other suppliers, acceptable?

When assessing the criterion of Reasonable, below are some key factors to consider:

• Is the cost amount consistent with available sources of comparator information?

• Is the cost amount net of applicable credits?

• Does the cost amount justify the expected return on benefits for the Government?

• Does the cost amount comply with any parameters that may have been pre-authorized in the

contract?

• Has the cost amount been allocated fairly between the Government and the contractor with

consideration for the benefits associated with the costs?

The above factors are presented in the logical order that contracting officers will need to follow when

assessing the acceptability of research and development costs. Details for these considerations are included

in Appendix A. It should be noted that the identified factors for assessing the criteria of Attributable,

Appropriate, and Reasonable are not exhaustive. As such, the identified factors should be consulted

alongside the applicable sections of the Costing Standard.

286 | Page Public Services and Procurement Canada September 30, 2019

Appendix A – Factors to consider before accepting R&D Costs

The following contains criteria and examples to assess whether research and development costs are

Attributable, Appropriate, and Reasonable.

Is the Cost Attributable?

Sub-criteria

Example Considerations to Assess Sub-criteria

1. Are the research and

development costs

supportable and

verifiable?

Research and development costs should be readily identifiable

based on contract cost reports produced by the contractor. The

contract cost reports should:

 Disclose the nature and purpose of the research and

development costs;

 Identify direct research and development costs; and

 Identify indirect research and development costs.

Disclosed information should include the type of research and

development activities, the research and development cost

breakdown (e.g. compensation costs, rework costs, etc.), and how

the costs contributes to the achievement of benefits for the contract.

2. Do the research and

development costs

contribute to the

achievement of:

a. contract specific

requirements;

b. strategic contract

outcomes; or

c. financial, schedule,

and quality benefits

for the contracts

that the

Government has

with the respective

contractor?

a. Research and development activities for specific product

development/improvement may be required for the

achievement of contract specific requirements. This could,

for example, occur when the contractor is engaged in a

contract with Defence Research and Development Canada

(in the context of Defence contracts). The contractor could

be required to conduct research and development activities

in the following areas:

emerging materials;

weapon systems;

cyber security;

military medicine; or

other areas of public safety and security science and

technology.

In this circumstance, research and development costs could

constitute 100% of the total contract cost.

3. Other Considerations

Research and development costs can improve the quality of the

contractor goods (e.g. through new or improved material) or reduce

the contractor’s production costs and time for its goods (e.g. through

improved production processes). Resultantly, this could create

potential cost savings, as well as more timely and quality

287 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Attributable?

Sub-criteria

Example Considerations to Assess Sub-criteria

goods/services, for the Government across the contract(s) it has (or

will have) with the respective contractor.

The contracting officer should be aware that research and

development costs represent an investment risk. This investment

risk reflects that:

 research and development activities may not always be

successful and result in benefits; and/or

 the amount of time required to conduct research and

development activities can be uncertain – thus creating

uncertainty around when corresponding potential benefits

may be realized.

As such, when assessing whether research and development costs

of the above nature are Attributable, the Government could provide

consideration to factors including, but not limited to, the following:

 Are the proposed research and development activities of a

specific or general nature? (It is presumed that general

research and development costs are a riskier investment

than specific research and development costs.)

 What is the purpose and what are the outcomes of the

respective contract(s)?

 What is the nature of the contractual relationship and its

potential duration?

 How long is the duration of existing contract(s)?

 Is the Government the primary customer of the contractor,

and does a potential for a long-term contracting relationship

exist?

 Do the research and development activities proposed for the

contract align with the core capabilities of the contractor,

and does the contractor have past experience conducting

research and development activities?

 What would be contractual terms for foreground intellectual

property ownership? This is particularly important when the

Government will not realize benefits from its research and

development investment during the duration of the current

contract, but rather in the longer term through the future use

of the developed intellectual property. The Government’s

288 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Attributable?

Sub-criteria

Example Considerations to Assess Sub-criteria

Policy on Title to Intellectual Property Arising Under Crown

Procurement Contracts identifies that either the contractor

or the Government can retain intellectual property

ownership.

 What is the success rate and length of relevant research

and development activities in the contractor’s industry?

 Costs applicable to Product Development projects partially

funded by Canada are not acceptable as general research

and development costs.

Is the Cost Appropriate?

Sub-criteria

Example Considerations to Assess Sub-criteria

1. Is the nature of the

costs consistent with

available comparator

information?

The nature of Appropriate research and development costs should

be consistent with available comparator information. Sources of

comparator information include but are not limited to:

 internally available data from other contracts;

 accessible data for contracts from other government

procurement organizations;

 accessible documentation, including historical and forward-

looking financial reports, for the contractor;

 publically available financial reports for other companies in

the contractor’s industry; or

 publically available financial reports for other companies in

the contractor’s geography.

For example if the contract in question requires research and

development activities in the field of military medicine, consideration

could be provided on assessing what types of research and

development costs typically occur during drug development in the

pharmaceutical industry.

289 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Appropriate?

Sub-criteria

Example Considerations to Assess Sub-criteria

In alignment with the Treasury Board Secretariat Contracting

Policy

, contracts may be structured with due consideration of

strategic outcomes that:

 support long-term industrial and regional development and

other appropriate national objectives, including aboriginal

economic development; and

 comply with the government’s obligations under the various

trade agreements such as the World Trade Organization –

Agreement on Government Procurement and the

Agreement on Internal Trade

As an example, contracts structured under the Industrial and

Technological Benefits (ITB) Policy must

 support the long-term sustainability and growth of

Canada’s defence sector;

 support the growth of prime contractors as well as

suppliers in Canada, including small and medium-sized

enterprises (SMEs) in all regions of the country;

 enhance innovation through research and technological

development in Canada;

 increase the export potential of Canadian-based firms; and

 promote skills development and training to advance

employment opportunities for Canadians.

To fulfil the above objectives, particularly the third objective, the

respective contractor may need to make certain research and

development investments.

It should be noted that the ITB Policy is complex, as it allows for

contractors to either incur direct or indirect costs for achieving the

above objectives. Furthermore, the policy allows contractors to incur

relevant costs before the timelines of an individual procurement as

well as pool costs and allocate them to multiple contracts.

Value and Ethics Code for the Public Sector. Government of Canada, Treasury Board Secretariat of Canada. December 2011.

http://www.tbs-sct.gc.ca/pol/doc-eng.aspx?id=25049. Accessed 1 March 2018.

ITB Policy: Value Proposition Guide. Government of Canada, Innovation, Science and Economic Development Canada, Office

of the Deputy Minister, Industry Sector, 19 December 2014, www.ic.gc.ca/eic/site/086.nsf/eng/00006.html, Accessed 26 October

2017.

290 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Appropriate?

Sub-criteria

Example Considerations to Assess Sub-criteria

Due to the strategic nature and complexity of policies, such as the

ITB Policy, the respective Government policy owners (e.g.

Innovation, Science and Economic Development Canada) should be

consulted when the acceptability of policy related costs are

assessed. Technical verifications should also be considered in the

overall strategy for oversight. Special reviews and approvals may

also be required here.

2. Is the reimbursement of

the costs, as it pertains

to the impact on

fairness for other

suppliers considered

acceptable?

The contracting officer should, with proper consultation, assess the

following.

 Is the inclusion of the research and development costs in

the contract due to the contract’s integration with other

Government of Canada mechanisms or programs (i.e. for

the purpose of achieving strategic outcomes)?

 Would the inclusion of the research and development costs

be viewed as an unfair subsidy that could result in a legal

challenge and/or harm to Canada’s reputation

internationally.

Is the Cost Reasonable?

Sub-criteria

Example Considerations to Assess Sub-criteria

1. Is the cost amount

consistent with

available sources of

comparator

information?

For example, the amount for Attributable and Appropriate research

and development costs could be compared to prior period research

and development costs to determine if there any anomalies in costs

from one period to the next. If there are anomalies (e.g. a large

increase in the amount of research and development costs for the

period), justification for the increase should be requested from the

contractor.

2. Is the cost amount net

of applicable credits?

The amount for Attributable and Appropriate research and

development costs should be reported net of applicable credits.

Applicable credits may include Government funding, such as grants,

subsidies or investment tax credits the contractor is receiving to

conduct research and development activities to achieve strategic

Government outcomes. When these outcomes are of an identical or

similar nature to the outcomes specified in the respective contract,

the amount for research and development costs should be adjusted

accordingly. Good practice would require the contractor to disclose

291 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Reasonable?

Sub-criteria

Example Considerations to Assess Sub-criteria

the nature and amount of any funding it is receiving from the

Government.

3. Does the cost amount

justify the expected

return on benefits for

the Government?

It should be demonstrated that the amount of research and

development costs incurred by the contractor justifies the expected

return on benefits for the Government. Benefits for the Government

can be of either a quantitative nature (e.g. production cost savings)

or qualitative nature (e.g. achievement of strategic policy outcomes).

When the primary intent of the research and development activities

is to reduce production costs for the contracts that the Government

has with the respective contractor, the contractor should

demonstrate that the production cost savings for these contracts is

at least equivalent to the respective research and development costs

that have been incurred.

When the incurrence of research and development costs are linked

to the achievement of strategic outcomes, a cost-benefit analysis

must be conducted in order to determine the level of costs to the

Government that would justify the achievement of the respective

benefits. This is particularly important when assessing benefits of a

qualitative nature

4. Does the cost amount

comply with any

parameters that may

have been pre-

authorized in the

contract?

A contract may contain limits for the amount of research and

development costs that can be reimbursed to the respective

contractor. The inclusion of parameters may be of more relevance

when the contractor has multiple active contracts with the

Government.

For example, there may be a limit for the percentage of contractor

general research and development costs that can be allocated to

Government contracts in relation to the total cost of the Government

contracts (i.e. contractor general research and development costs

can comprise up to X% of the total cost of the contractor’s

Government contracts).

292 | Page Public Services and Procurement Canada September 30, 2019

Is the Cost Reasonable?

Sub-criteria

Example Considerations to Assess Sub-criteria

5. Has the cost amount

been allocated fairly

between the

Government and the

contractor with

consideration for the

benefits associated with

the costs?

Research and development costs should be fairly allocated between

the contractor and the Government based on the benefits expected

to be realized by each party.

Specific considerations for the fair allocation of research and

development costs include, but are not limited to, the following:

 Are the research and development costs of a specific or

general nature?

 What is the level of investment risk for research and

development costs – how likely is it that benefits will be

realized and if so, is there certainty around the timing of

when the benefits will be realized?

 Do the research and development costs provide potential

commercial value to the contactor beyond the existing

contracts it has with the Government?

 What is the primary customer base of the contractor – the

Government or non-government organizations (e.g.

industry)?

 Do the research and development costs have no or

unconfirmed commercial value to the contractor beyond the

existing contracts it has with the Government?

 What are the contract terms for intellectual property that is

generated during the contract – will the Government or the

contractor own the rights to the intellectual property?

As an example, if the research and development costs have no or

unconfirmed commercial value to the contractor beyond the existing

contracts it has with the Government, it would presumably be fair to

allocate a greater proportion of the costs to Government contracts.

On the contrary, when the research and development costs provide

potential commercial value to the contractor and potential qualitative

benefits to the Government, the results of a cost-benefit analysis

would inform the fair allocation of these costs between the contractor

and the Government.

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Appendix B – Investment Tax Credits (ITC) for Scientific Research and Experimental Development

Below is a short explanation of investment tax credits (ITC) that relate to Scientific Research and

Experimental Development (SR&ED) qualified expenditures and applicable rates.

Scientific Research and Experimental Development (SR&ED) is a tax incentive program aimed at promoting

the advancement of technology in Canada. Companies of all sizes and industry sectors making qualified

expenditures in connection with SR&ED activities in Canada are entitled to receive an investment tax credit.

To qualify, the work must meet the definition of scientific research and experimental development (SR&ED)

in subsection 248(1) of the Income Tax Act. The following is a definition of SR&ED

“scientific research and experimental development” means systematic investigation or search that is carried

out in a field of science or technology by means of experiment or analysis and that is:

(a) basic research, namely work undertaken for the advancement of scientific knowledge without a specific

practical application in view;

(b) applied research, namely work undertaken for the advancement of scientific knowledge with a specific

practical application in view; or

advancement for the purpose of creating new, or improving existing, materials, devices, products or

processes, including incremental improvements thereto;

and, in applying this definition in respect of a taxpayer, includes:

(d) work undertaken by or on behalf of the taxpayer with respect to engineering, design, operations research,

mathematical analysis, computer programming, data collection, testing or psychological research, where the

work is commensurate with the needs, and directly in support, of work described in paragraph (a), (b), or (c)

that is undertaken in Canada by or on behalf of the taxpayer,

but does not include work with respect to:

(e) market research or sales promotion;

(f) quality control or routine testing of materials, devices, products or processes;

(g) research in the social sciences or the humanities;

(h) prospecting, exploring or drilling for, or producing, minerals, petroleum or natural gas;

(i) the commercial production of a new or improved material, device or product or the commercial use of a

new or improved process;

(j) style changes; or

(k) routine data collection.

https://www.canada.ca/en/revenue-agency/services/scientific-research-experimental-development-tax-incentive-

program/claiming-tax-incentives.html

294 | Page Public Services and Procurement Canada September 30, 2019

ITCs reduce taxes payable and, for certain entities, the amount of credit in excess of taxes payable can be

refunded to the entity, providing valuable assistance to emerging businesses and others that are not

taxable in the year. Below is a summary of the investment tax credits and refund rates that apply to

qualified expenditures:

Geographic Region

Entity

Investment tax credit

(ITC) rate

Refund rate

Qualified SR&ED in

Canada

Qualifying Canadian-

controlled private

corporations (CCPCs)

35% of annual

qualified current

expenditures up to

threshold ($3 million or

less)

+ 15% of qualified

current expenditures

not eligible for the

35% rate (i.e. in

excess of the

expenditure limit)

100% of ITCs

computed at the 35%

rate

+ 40% of ITCs

computed at the 15%

rate

Other corporations

15%

n/a

Individuals

40% of ITCs

Qualified property in

Atlantic provinces,

Gaspe region and

prescribed offshore

regions

Qualifying CCPCs

10%

40% of ITCs

Other corporations

n/a

Individuals

40% of ITCs

295 | Page Public Services and Procurement Canada September 30, 2019

Appendix C – Guidance provided by Comparator Jurisdictions

The guidance for assessing the Acceptability of research and development costs provides, to practitioners,

enhanced clarity, completeness, and utility for determining appropriate treatment of these amounts. The

recommended guidance is consistent with current guidance in comparator jurisdictions (i.e. Australia and

United Kingdom)

in areas such as the treatment of investment tax credits.

The United Kingdom identifies that investment tax credits should be used to reduce the research and

development costs accepted for a contract.

Australia specifically identifies that investment tax credits should be used to reduce any general research

and development costs accepted for a contract.

Australian Government-Department of Defence-Capability Acquisition and Sustainment Group, Capability Acquisition &

Sustainment Group Cost Principles, October 2017, http://www.defence.gov.au/casg/Multimedia/CASG_Cost_Principles-9-

8642.pdf, Accessed 1 March 2018.

Single Source Regulations Office, Single source cost standards-Statutory guidance on Allowable Costs, February 2018,

https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/678280/Allowable_Costs_guidance_April_2018.pd

f, Accessed 1 March 2018.

296 | Page Public Services and Procurement Canada September 30, 2019

ANNEX 5.2.5 (DISCUSSION PAPER - INDUSTRIAL AND TECHNOLOGICAL BENEFITS

OBLIGATIONS AND VALUE PROPOSITIONS – COST CONSIDERATIONS)

Context

Canada's Defence Procurement Strategy (DPS), announced in February 2014, has transformed Canada's

Industrial and Regional Benefit (IRB) Policy into the Industrial and Technological Benefit (ITB) Policy. This

change will help ensure that defence and security procurements going forward are better leveraged to create

jobs and economic growth in Canada.

A core element of the ITB approach is a rated and weighted Value Proposition (VP). Bidders will be motivated

to put forward their best Value Proposition for Canada in their bid proposal, as industrial considerations will

now directly influence which bidding firm wins a contract. A more complete explanation is provided at

Appendix A of this paper.

This guidance document is intended enhance contracting officers’ understanding of the complexities across

the various scenarios where economic benefits are included in contracting process. This discussion paper is

not intended to be a procedural document.

Factors to Consider

Value propositions and other requirements introduced into the procurement process, which are not

necessarily required to address operational requirements of the buyer, set parameters within which the

contractor is expected to operate in the performance of the contract. These parameters can limit the

contractor’s options in sourcing or alter delivery of work under contract. Addition of non-operational

requirements tend to increase the complexity of bid evaluations, which can impact the time required to award

the contract. Any restrictions on the marketplace or choices available to contractors, can affect both the price

of goods and services acquired and the cost of contract administration for both Canada and the contractor.

Decisions to introduce non-operational requirements relate to sourcing decisions. For purposes of cost-

based pricing, contracting officers need to know whether a VP or other similar requirements:

 are to be provided by the contractor at no additional cost to Canada; or,

 recoverable, in part or in whole, through contract pricing arrangements.

For example, for cost-reimbursable contracts or when pricing a contract extension for a fixed price contract,

are the costs attributable to delivery of non-operational contract obligations to be included in the price charged

to Canada? Are the incremental costs for contract administration to be included in the price charged to

Canada?

Related decisions should be clearly documented as part of the procurement strategy related to contract

pricing, tendering documents and the contract itself to avoid any uncertainty on contract pricing.

Under the ITB Policy, contractors have a period of time to achieve VP commitments, which will generally be

tied to the period of time that the goods or services are supplied under the contract. In some cases, the

achievement period may deviate from the delivery schedule if more or less time is required to ensure that the

greatest benefit is leveraged from the procurement. Strong measures have been developed and will continue

297 | Page Public Services and Procurement Canada September 30, 2019

to be taken to ensure compliance, including the use of performance guarantees such as holdbacks,

milestones, liquidated damages, letters of credit and vendor performance.

Generally, each contractor is required to report to ISED on progress in meeting its ITB obligations, including

VP, commitments annually.

Based on the scale and complexity of the acquisition, considerable support might be required from the

contracting team, which may include price and assurance advisors, client department representatives and

other subject matter experts. Contracting officers are encouraged to consult with the Procurement Support

Services Sector (PSSS).

Under the Industrial and Technological Benefits (ITB) Policy, the Government of Canada seeks to leverage

competitive and non-competitive defence procurement to generate economic benefits for Canada. A Value

Proposition is used in cases where there is a competitive bidding process. In cases where the procurement

is non-competitive, the Government of Canada will negotiate directly with the contractor to obtain maximum

economic value for Canada.

The ITB Authority, on behalf of Innovation Science Economic Development Canada (ISEDC), is responsible

for a contractor’s performance under the ITB contractual provisions, and seeks to promote growth in

Canada’s defence sector. In management of the ITB obligation, among other responsibilities, the ITB

Authority focuses on the bid selection process by awarding points to contractors in a competitive bidding

process based, in part, on their Value Proposition. The ITB Authority also determines acceptable transactions

for contractors to fulfil their overall ITB obligations, which is not less than 100 percent of the contract price.

In cases where the contract price is based on estimated or actual costs, it will be important to identify costs

incurred to fulfill ITB obligations and determine whether these amounts should be allowed as contract costs.

ITB related costs that are not associated with contract deliverables should not be considered as allowable

contract costs. Consider the example of a contract which involves the delivery of defence production goods

and also includes a VP. The VP required the contractor to engage in separate research and development

activities not related to the contract deliverables. The costs associated with the research and development

activities would not be considered allowable.

It would not normally be considered practical to attempt to identify and allocate general and administrative

costs associated with value proposition activities because in most cases, these costs would not be considered

significant in relation to total general and administrative costs.

Costs related to ITB activities that could be considered allowable contract costs are those that are necessary

to provide the contract deliverables. These would include direct materials, direct labour, and indirect costs

undertaken as part of the contract performance that simultaneously fulfills a VP requirement. For example, a

VP requirement could require a contractor to employ members of a disadvantaged group. These activities

are necessary to complete contract deliverables and also meet the VP requirement. The costs associated

with these activities would, however, still have to meet the Costing Standard requirements of being

attributable, appropriate, and reasonable to be considered allowable contract costs.

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It is therefore important to have clear and substantive information on ITB activities in order to properly identify

cost categories and allowable contract costs. This may extend into rate negotiations and follow-up

procedures regarding the contractor’s basis of payment and submitted costs.

Recommendation

For contracts involving a Value Proposition (or negotiated ITB) where price is based on estimated or actual

costs, the VP or ITB activities should be identified and a determination made as to whether the activities are

required for providing the contract deliverables.

ITB related costs that are not associated with contract deliverables should not be considered as allowable

contract costs.

Costs related to ITB activities that could be considered allowable contract costs are those that are necessary

to provide the contract deliverables. The costs associated with these activities would, however, still have to

meet the Costing Standard requirements of being attributable, appropriate, and reasonable to be considered

allowable contract costs.

It would not normally be considered practical to attempt to identify and allocate general and administrative

costs associated with value proposition activities because in most cases these costs would not be considered

significant in relation to total general and administrative costs.

Where a Cost Accounting Practices Submission (CAPS) is used to recognize the accounting practices

accepted by Canada, the method of accounting for costs associated with Value Proposition or other ITB

activities should be included as part of the CAPS document.

Consideration should extend to the nature and type of contract when evaluating VP activities. The nature of

the contract affects how to identify admissible activities and costs for the contract period, as the contract work

may often overlap with the ITB criteria used in the VP evaluation framework. Professional judgement should

be used in order to determine whether a certain level of proposed transactions is reasonable given the

requirement, and whether the transactions can be justified as directly applicable to the procurement.

An appropriate validation strategy should be in place to ensure that the contractor delivers on the

commitments related to the value proposition.

Application

Where contract price is based on estimated or actual costs, contracting authorities should identify and assess

activities associated with VPs and ITB obligations to determine whether the activities are required to provide

the contract deliverables.

A CAPS should be used to identify and establish an agreement with the contractor on the accounting methods

to be used to recognize costs associated with VP or ITB related activities.

Where the activities are not required for providing the contract deliverables, they should not be considered

as meeting the Attributable criteria for the evaluation of contract costs and therefore not allowed.

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Where the activities are determined to be necessary in relation to providing the contract deliverables, they

should be considered as allowable contract costs to the extent that they meet the criteria of Attributable,

Appropriate, and Reasonable (AAR) for the evaluation of contract costs.

The AAR framework supports the analysis of the contractor’s proposed and allowable ITB transactions in

order to determine whether there is a need to include any associated costs into the contract. It also assures

the Contracting Authority that costs that cannot be directly or indirectly related to the Work are not included

as costs paid for in any way by Canada.

The overarching principles in the assessment of allowable costs incurred under ITB and VP obligations are

the criteria of Attributable, Appropriate and Reasonable. This framework determines whether a cost is

acceptable for contract inclusion, and whether the proposed amount is reflective of the level of activity

required by the contract. The following two scenarios exemplify what costs would or would not be deemed

allowable in contracts with ITB obligations.

Example 1

A Company was recently awarded a $20 million defence contract for the manufacture of high-tech equipment.

The contract includes an ITB obligation. In the contract negotiation, Canadian Supplier Development was

identified and agreed to as a contractual ITB obligation, with a minimum of 5 percent of the contract value to

be undertaken as business activity with Small and Medium size Business (SMB).

The Company plans to purchase specialized components for the sum of $1 million from an SMB to meet its

ITB obligation. These components would be used as direct materials in the manufacturing process.

The cost of the components has been identified by the contractor as a proposed transaction, meaning that

the transaction will be executed as part of the performance of the contract work. As these costs can be

directly attributed to the performance of the contract, they should be considered as allowable assuming that

they would also satisfy the criteria of Attributable, Appropriate, and Reasonable for the evaluation of contract

costs.

Example 2

A company has negotiated a defence contract worth $50 million with an ITB obligation for the production of

aircraft propulsion systems. As part of the negotiation, the company committed to advancing skills

development and training in the aerospace industry for which the contract is closely aligned. In order to do

so, the company agreed to participate in a co-op program with a local Canadian accredited university to

provide hands-on learning to prospective students. Future students will gain the skills relevant to the industry,

but will not be assigned to tasks directly related to the procurement. The company estimates that the program

will cost approximately $280,000 in labour, overhead, and general and administrative expenses.

In this scenario, the $280,000 associated with the co-op program would be considered as a transaction under

the ITB Policy in that it is being undertaken for business activity that is not directly related to the procurement.

Because participating students will not be undertaking any business activity related to the procurement,

labour costs and other related expenses (with the exception of incidental general and administrative costs)

would not be considered as direct or indirect costs. Under the AAR framework, the criteria have not been

met, and therefore these costs should not be charged to the contract.

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Appendix A

What is a Value Proposition?

As part of Canada’s Defence Procurement Strategy, the Industrial & Technological Benefits (ITB) Policy

seeks to increase the growth and global competitiveness of the defence sector and to encourage long-term

investments in Canada. Large eligible defence and Canadian Coast Guard procurements are leveraged to

achieve economic benefits in the following five procurement areas:

 Work in the Canadian Defence Industry

 Canadian Supplier Development

 Research and Development in Canada

 Exports from Canada

 Skills Development and Training

These areas, or pillars, form the evaluation criteria used when scoring a contractor’s Value Proposition (VP)

submission. The VP is the bidder’s proposal to Canada on how they plan to achieve the economic benefits

that align with each defence procurement contract. In order to achieve these benefits under the ITB Policy,

the contractor commits to undertaking business activities in Canada equal to 100 percent of the contract

value, to be fulfilled by the end of the contractual achievement period. At bid submission, the contractor is

typically required to identify specific transactions with supporting information in their VP at a general level of

30 percent of the bid price. These transactions then become contractual VP obligations upon contract award,

and the contractor must later identify further transactions during the three years subsequent to contract award

in order to achieve the 100 percent requirement.

ITBs may include Key Industrial Capabilities (KICs) to incentivize innovation in emerging technologies,

established competitive competencies, and critical industrial services in Defence, and to encourage early

contractor investment in these areas of importance. Procurements that align with particular KICs will typically

place greater emphasis on specific pillars during the evaluation phase.

Special consideration for ITB cost elements is significant for the following reasons:

 Contractors may undertake various forms of investments prior to contract award which may be credited

to current contractual obligations

 In a competitive bid solicitation, contractors are motivated to identify as many transactions as possible at

bid submission for higher scoring potential during evaluation, so careful consideration of cost eligibility is

required for a fair evaluation process.

Further information on Industrial and Technological Benefits Policy and the Value Proposition can be found

on the Innovation, Science and Economic Development website at the following address:

https://www.ic.gc.ca/eic/site/086.nsf/eng/00006.html#Intro

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Roles and Responsibilities

The Contracting Authority, on behalf of Public Services and Procurement Canada maintains responsibility for

the contract throughout the fulfillment of Canada’s requirement. The Contracting Authority facilitates the

exchange of ITB-related information between the contractor and the ITB Authority and acts upon the ITB

Authority’s request for performance under, and changes related to, the ITB terms and conditions.

Definitions

“Transaction” means a commercial or business activity involving the Contractor or an Eligible Donor and a

Recipient, that is carried out by means of a contract, sales agreement, license agreement, letter of agreement

or other similar instrument in writing, and which has an identified dollar value. A Transaction meets all

eligibility criteria, aligns with the Terms and Conditions with respect to valuation and Transaction types, and

has been formally accepted as such in writing by the ITB Authority (1.1.31.)

; and

“Value Proposition” or “VP” means the portion of Commitments and Transactions, along with any other

information, which was submitted in the Proposal at the time of the Bid (1.1.32)

Industrial and Technological Benefits (ITB) – Model Terms and Conditions. Government of Canada, Innovation, Science and

Economic Development Canada. October 2016. http://www.ic.gc.ca/eic/site/086.nsf/eng/h_00011.html. Accessed July 23, 2018.

Ibid.