# Presentation: 746273

## APD 101 / 201 The Advance Planning Document Process

## Overview

- This Session Will Describe the Basic Requirements for the Creation and Ongoing Maintenance of Your Planning, Implementation, Annually Updated and As-Needed Advance Planning Documents

## APD / APDUBASICS

## Purpose of an APD

- First:   An APD Provides the Federal Government With the Data Required to Determine Funding for a State Project
- Second:   An APD Provides the State and Federal Agencies With the Kind of High Level Data Generally Used to Monitor a Project’s Progress

## Types of APD’s

**Two Major Types of APD Submissions**
**Planning APD** Used to Seek Reimbursement for Planning Costs
**Implementation APD**Used to Seek Reimbursement for Costs of Designing, Developing, and Implementing a System

**Notes:**
Note:  Mention there is no overlap between these two types of APD’s - upon ACF approval of a state’s initial Implementation APD, the Planning APD is considered closed.

## Planning APD

-   Generally Used in Support of Major System Development Projects, As Opposed to Less Complex Computer Acquisitions Like Hardware and Software Buys
- This Is a Brief Document of Usually Not More Than 15-30 Pages

**Notes:**
Note: Mention the reg says 6 - 10 pages, but our experience suggest most states fall in the 15 - 30 category

## Elements of a Planning APD

- 1.   Problem Statement
- 2.   Project Management Plan (PMP)
- 3.   Planning Budget
- 4.   Total Project Cost Estimate

## Planning APD

**The Problem Statement**
- 1-3 Pages of General Discussion of the Problem(s) Faced by the Agency and of the Need to Seek a Remedy.
- Cites Examples of Issues/Problems Being Faced

## Planning APD

**The Project Management Plan (PMP)**
- Provide a List of Key Personnel
- Provide an Organization Chart for the Planning Effort
- Provide a Task-Oriented List of Planning Activities to be Conducted Including Project Schedule Information

**Notes:**
Notes: Mention the org chart should show lines of authority & communication - I.e. how do the various organizations in the project interact? It should also show state contractor staff.

## Planning APD

**The Project Management Plan (PMP)**
- The Task-Oriented List of Activities to be Conducted Must Include Commitments to Conduct a:
- Needs Assessment,
- Feasibility Study
- Alternatives Analysis
- Cost Benefit Analysis

**Notes:**
Notes: Mention that requirements definition is part of the feasibility study.

## Planning APD

**The Project Management Plan (PMP)**
- Other Task-Oriented Activities That a PMP Might Include Are:
-    Developing RFP’s/IFB’s and Conducting Procurements for Quality Assurance, IV&V, Software Development, Project Management Support, Hardware Purchasing, Installation, Implementation APD Development, etc.

## Planning APD

**Planning Budget**
- Provide a Budget Spreadsheet For Each FFP Rate To Be Claimed, Totaled by Federal Fiscal Quarter and Year
*The Budget Categories Include:*
- State Staff, Contractors (listed separately), Hardware and Software, Training, Miscellaneous/Supplies, Travel.

**Notes:**
Notes: Note that different FFP rates applied when we had EFFP.  These are N/A today.  Also not that the contractors listing is usually by company or purpose (QA, PM, IV&V, etc.), or both.

## The Implementation APD

- Executive Summary
- Statement of Needs and Objectives
- Feasibility Study *- Including a Summary of the Analysis of Alternatives*
- Project Management Plan
- Interface Requirements
- Security
- Budget
- Cost Benefit Analysis

## The Implementation APD

**Executive Summary**
- Overview of the Project’s Expectations, Goals
- Statement of Executive Support for the Project
- Summary of the Planning Phase Activities
- Summary of Any Requests for Waivers
- Summary of Total Project Cost Estimate
- Summary of Initial Project Funding Requested

## The Implementation APD

**Statement of Needs and Objectives**
**&**
**Feasibility Study *****- Including a Summary of the Analysis of Alternatives***
- A High Level Discussion of the Requirements Analysis, the Results of the Analysis of Alternatives, and a High Level Discussion of the Feasibility Study

**Notes:**
Notes: Remember from the Planning APD, where we listed our Issues/Problems.  The Statement of Needs and Objectives, at a high level, summarizes how the project solves those issues and problems - how it meets our goals - what we will have when we are done.This is a more detailed summation because we now know what our requirements definition says, what our architecture requirements are, and what our timeframes are, etc.

## The Implementation APD

**Project Management Plan**
- Task-Oriented Project Activities Listing
- (by *Module/Function, Procurements, Including IV&V*)
- Project Schedule by Lifecycle Phases
- (*GANTT, PERT, MS Project is ACF Standard *)
- Resources Statement
- (*Key Personnel, Oversight, QA, State and Contract Staff*) and Organization Charts for the Project and Umbrella Agency
- Procurements
- (*By Type and Purpose, Including Waiver Requests)*

**Notes:**
Note: In the project schedule discussion, emphasize MS Project as the ACF standard.

## Project Management Plan

**Sample Task-Oriented Activity**
_**CHANGES TO CLIENT DATA  **__(completed by in-house staff and contractor staff)_
**	****REQUIREMENT:** CSMS was enhanced to accept the child’s birth city, county, state and residency state.  CSMS was to be enhanced to accept the date of request of application and the date the application and program information was provided.  Also, fields were added to track Medicaid and Foster Care case activity.
- 	**DESIGN:**  December 15, 1998 - January 29, 1999 (1 staff month) [$6,392]
- 				                    	(1⁄2 contractor month) [$6,150]
- 	**DEVELOPMENT:**  February 1, 1999 - February 26, 1999   (1 contractor 				   month)[$12,300]
- 	**TESTING:**  March 1, 1999 – March 31, 1999 (1⁄4 staff month) [$1,598]
- 	 **IMPLEMENTATION:**   April 1, 1999 – April 15, 1999 (1⁄4 staff month) [$1,598]
- 	 **STATE STAFF MONTHS:**   11⁄2  (1 program person - 11⁄2 staff months) [$9,588]
- 	 **CONTRACT  MONTHS:** staff  months [ $18,450]
-       	 **COST:**   $28,038 [$9,588 = program; $18,450 = contractor]
- 	 **STATUS:** COMPLETED

## Project Schedule Example

**Project Schedule Example**

## The Implementation APD

**Interface Requirements**
- List and Describe Each Interface, Including:
- Purpose,
- Frequency,
- Agency/Corporate Dependencies/Limitations

**Notes:**
Notes: As an example, this section might list a utility company, say the electric company, but note as a limitation that it is still to be negotiated and so may not happen, versus the TANF interface, which already exists and will be enhanced.
Interface requirements should also include interfaces with Federal systems (FPLS, etc).

## The Implementation APD

**Security**
- Summary of Program(s) Risk Analysis
*(Scope, Data Access, Physical Plant, Personnel, Frequency)*
- Summary of Program(s) Disaster Recovery
- and Contingency Planning
- Summary of Anticipated Application Security
- Identification of Program’s Security Officer

**Notes:**
Notes: Mention all of this is available from the state’s “Biennial Security Review” - and try not to laugh.
You may also want to mention a forthcoming new requirement to submit the Biennial Security Review to ACF.

## The Implementation APD

**Budget**
- Budget Line Items Reflect Tasks in PMP
*(Sub-elements In Each Task Are State Staff and Contractors)*
- Other Costs Can be Separate Line Items
*(Data Center, Hardware/Software, QA, IV&V, Travel, Training, etc.)*
- Recommend Separate But Identical Budgets for Different FFP Rates (*e.g., Regular and Enhanced*)
- Budget Spreadsheets Must Accumulate
- Costs By FFQ, Summed To FFY
- Provide a Budget Summary by FFY by FFP Rate - Include a Line to Show Total Planning Phase Costs

**Notes:**
Notes: Talk about the fact that the sub-element for contractors implies a summary total, not unique sub-elements for each company on each task - something that might occur to a state person if body shop staffing is used.

## Sample Project Budget

## Sample Summary Budget

## The Implementation APD

**Budget**
- Program Cost Distribution
*Factors:  Budget Costs By Year, By Program, By FFP Rates*
*Overview of Cost Allocation Methodology**Calculation Algorithm(s)*
- Cost Allocation Plan (CAP)
*(Briefly Discuss Departmental/Project Cost Pools Affecting *
*Overhead, Data Center, Telecommunications, etc.*
*Cite Any U.S. DHHS Division of Cost Allocation Plans)*

**Notes:**
Notes: The program cost distribution section usually only applies to Integrated systems - e.g. FL, MD. If CSE is standalone, this is not needed.
As for any Cost Allocation Plan areas, these are brief (one paragraph) noting what and why they apply to this project and that HHS’s DCA has approved their use.

## The Implementation APD

**Cost Benefit Analysis**
- ACF Guidance Document Recommended:
*“**Feasibility, Alternatives and Cost Benefit Analysis”*
- Functional Model
*(Attributes Benefits to Individual Functions)*
- Revenue Stream Model
*(Attributes Benefits as a Function of *
*Program/Project Cost Ratios)*

**Notes:**
Notes:  Mention our Companion Guide 3 for CSE specific projects.  This is where the two models with examples can be found.  Also mention the ease of use of the revenue stream model vs. complicated application of functional - but that for feasibility studies, only the functional model is allowable as it provides the granularity necessary to differentiate the alternatives in the FS.

## The Implementation APD

**Cost Benefit Analysis**
- Basic Components Include:
- Summary Description of ***Whiz Bang*** Benefits
*(Also Cites Summary of Breakeven Date and *
*Cost Benefit Ratio Over Entire Project Life)*
- Costs and Benefits Analyses
- Breakeven Chart

## Two Types of APD Updates

**Annual** - Submitted on the *Annual Anniversary* of the Implementation APD to Provide the Official Project Status Updates, Request Continued Project Funding, and Report Post-implementation Costs and Benefits
**As-Needed** - Used to Uniquely Report Significant Changes to the Project Approach, Procurement, Methodology, Schedule, or Costs.  Also Submitted When One or More Critical Milestones Are Missed

## APD Updates

**Specifically APDU’s are required when ...**
**1.   For Enhanced Funded Projects;**
-     -   Annually
- 	 -   Project cost increase of  $100K
- 	 -   Schedule extension > 60 days ...
**2.   For Regular Funded Projects;**
-     -   Annually (Total project cost > $5 Mil. Or if requested)
- 	 -   Project cost increase of  $1 Mil.  or  >
- 	 -   Schedule extension > 120 days ...

## Annual APDU Submittal Requirements

- Submittal Required *60 Days Prior to the One Year Anniversary* of the Last APD Approval
- Continue Until OCSE Has Determined the Implemented System Has Reached or Passed a Break-even Point or 5 Years, Whichever Comes First
- Failure to Submit in a Timely Fashion Could Lead to Suspension of the Project or to the Requirement for an IV&V Assessment

**Notes:**
Comment - add one or two viewgraphs to discuss APD closeout after this page

## Annual APDU Content

**Each Annual APDU Must Include:**
- An Updated Executive Summary That Reports on Project Status of Major Tasks and Milestones
- A Reference to the Initial Approved APD and All Subsequently Approved Changes As a Baseline Against Which Any New or Additional Changes Are Now Being Proposed
- An Updated Project Management Plan (PMP) That Reports On New Tasks, Tasks Completed, Degree of Completion of Unfinished Tasks, Changes in Resources, Organization, Etc.

## Annual APDU Content

**Each Annual APDU Must Include:**
- An Updated Project Schedule With Revised Completion Dates for All Tasks (New, Complete, Unfinished)
- An Updated Procurement Plan, Including a Revised Procurement Waiver Request, If Applicable
- An Updated Project Budget Reflecting ...
- Expenditures Status Detailing Costs Incurred To-date by FFY
- Narrative Explaining the Difference Between Projected and Actuals for the Previously Approved APD
- An Updated Budget Spreadsheet Including Requests for Additional Federal Funding

## Annual APDU Content

**Each Annual APDU Must Include:**
- A Report of Any Approved or Anticipated Changes to Allocation Basis in APD's Approved Cost Methodology
- An Updated Cost Benefit Analysis Report Comparing Estimated Cost-Savings to Actual Cost Benefits To-date
- Updates to Any Remaining Sections (Security, Interfaces) (Otherwise Either Resubmit Same Sections or State in the Summary that No Changes to These Sections Exist.)

**Notes:**
Notes: An updated CBA will do this for you in that with each page printed out comparison is obvious.

## As-Needed APDU Submittal Requirements

- Submittal of an As-Needed APDU is Required Whenever a Critical Milestone is Missed, a Procurement Approach Changes, or the CAP Methodology Changes.
- Also Required Whenever Changes to the Project Schedule or Costs Exceed Regulatory Thresholds

## As-Needed APDU Content

- The As-Needed APDU Must Contain a Revised Schedule and/or Budget to Show the Change in Schedule, Cost, or Cost Allocations
- The As-Needed APDU Must Contain Supporting Documentation (Usually in the PMP) to Justify the Need for Changing a Previously Approved Project Schedule, Cost, Milestone, Tasking, or Procurement Approach

## APD Submissions

**Send APD’s To:**
- 		**Joel Anthony, Acting Director**
**	****	****Division of Financial Services/OA**
**	****	****Administration for Children & Families**
**	****	****370 L’Enfant Promenade, S.W.**
**	****	****Washington, D.C.   20447**
- 		   	One Copy for DSSP
- 		   	One Copy for Each Federal Funding OPDIV Involved
**Send a Copy to Your Regional Office**

## Approval of APD’s

**The State Will Receive Response Either From**
- 		**Joel Anthony**
**	****	****Director,**
**	****	****DFS/OA/ACF**  (for multi-OPDIV-related APD’s)
- 					 - or -
- 		**Commissioner**
**	****	****OCSE/ACF**  (for IV-D specific APD’s)

## Approval of APD’s

**ACF’s Response Will:**
- Grant Approval (With or Without Conditions);
- Disapprove the Request;
- Defer Decision Pending Submission of Additional Information

**Notes:**
Notes: We rarely disapprove because disapproval of an APD suspends it - and thus causes a loss of funding until it can be approved.  Instead, we prefer to defer a decision until we can get the pertinent information to allow an approval - even if it is just a conditional approval.
Conditions will be clearly stated with what action the state must accomplish to meet the condition and what schedule they must meet.

## Approval of APD’s

**If No Written Response Is Received by ****the State Within 60 Days**
- The Response Is “Provisionally Approved” From the 61st Day Following Acknowledged (Written) Receipt of the State’s Submission to HHS.

**Notes:**
Notes:  States must be cognizant to look for the “Acknowledgement of Receipt” letter from us.

## “Provisional Approval”

- Means That the State Can Proceed With Its Project, _at Its Own Risk_, Without Waiting for HHS Written Prior Approval
- Once HHS Approves the Project, It Will Be Eligible for Funding _From the Date of Provisional Approval_.

**Notes:**
Notes: However, if approval is deferred (or if the APD is disapproved) the date of provisional approval is no longer applicable.

## Sample Waiver Request

_**Waiver Request:**_
- Upon approval of this AAPDU, the State requests a waiver of federal prior approval for future
- task orders for contractual services for activities and programming related to ASSET$
- applications development, FSA and PRWORA compliance, certification compliance, and other
- developmental, maintenance and support activities. Pertinent documentation related to any task
- order will promptly be forwarded to your office for your files.   Funding for such services and
- any other additional costs incurred will be reported and requested in Annual APDUs that will
- be provided on a regular basis.  If these costs exceed the requested thresholds, As Needed APDUs
- will be provided prior to the annual update reporting.  Additionally, the State requests that the
- threshold be increased from $100,000 to 10% of the total project cost for prior approval for
- unanticipated cost increases.  [The list of current contract staff and the additional (new) contract
- staff requested is found on pages 20 and 21.]

## APD Disapproval

**An APD May Be Disapproved If:**
- The CSES Ceases to Comply With the APD
- Not Enough Resources Allocated to the Project (including QA)
- Poor or Inadequate Project Management
- Ill-conceived Project Plan
- Required IV&V Assessment Not Completed

## APD Disapproval

**When OCSE Disapproves an APD:**
- CSES Implementation Project Is Suspended
- Previously Approved FFP for the Project Ceases For The Entire Period of the Suspension of the APD.
- No Additional FFP Will Be Approved Until the APD Is Re-authorized

## APD Issues and Opportunities

- Procurement Waivers - Master Contracts
- Small Projects that Eventually Exceed Thresholds for APD Submission
- The Last APD - Close-out
- Close The APD - Or Enhance The System?

## References

- Title 45 Public Welfare and Human Services Code of Federal Regulations (CFR), Part 307--Computerized Support Enforcement Systems
- Title 45 Public Welfare and Human Services Code of Federal Regulations (CFR), Part 95--General Administration-Grant Programs (Public Assistance and Medical Assistance)
- Title 45 Public Welfare and Human Services Code of Federal Regulations (CFR), Part 74 - Uniform Administrative Requirements for Awards and Subawards to Institutions of Higher Education, Hospitals, Other Nonprofit Organizations, and Commercial Organizations; and Certain Grants and Agreements with States, Local Governments and Indian Tribal Governments

## References

- U.S. Department of Health and Human Services, Administration for Children and Families and Health Care Finance Administration – State Systems APD Guide, September 1996
- U.S. Department of Health and Human Services, Administration for Children and Families, Office of Child Support Enforcement – Addendum to State Systems APD Guide for Child Support Enforcement Systems, March 1999
- Action Transmittal OCSE-AT-90-11, Policy Clarification Relating to Automated Child Support Enforcement Systems, October 9, 1990

## References

- U.S. Department of Health and Human Services, Administration for Children and Families, Office of Child Support Enforcement – Automated Systems for Child Support Enforcement: A Guide for States, Revised April 1999, Updated December 1999
- U.S. Department of Health and Human Services, Administration for Children and Families – Feasibility, Alternatives, and Cost/Benefit Analysis Guide, July 1993
- U.S. Department of Health and Human Services, Administration for Children and Families, Office of Child Support Enforcement – Cost/Benefit Companion Guide, August 1994
- U.S. Department of Health and Human Services, Administration for Children and Families - Companion Guide 3:  Cost/Benefit Analysis Illustrated for Child Support Enforcement Systems, September 2000