Subpart 507.1 - Acquisition Plans

Parent topic: Part 507 - Acquisition Planning

507.101 Definitions.

“Planner” means the person residing in the requirements office who initiates, coordinates and

prepares written acquisition plans. The person may be in an individual program office or have

responsibility for a number of such offices.

“Planning team” means a team of individuals formed to prepare individual elements of an acquisition

plan. The team should be comprised of technical and professional representatives from the

requirements customer, contracting, budget, counsel, small business technical advisors (SBTA), and

other offices as warranted.

“Requirements office” means the internal GSA office that establishes and funds the agency need. If

an organization outside of GSA establishes and funds the need, then the requirements office will be

the GSA office that is managing the acquisition for that outside organization.

507.103 Agency-head responsibilities.

(a) The HCA must ensure that the planning team adheres to the requirements of FAR part 7 and this

part.

(b) Approval thresholds.

(1) The following are the dollar value thresholds and the level of the approving official for approving

acquisition plans or waiving written acquisition plans. The HCA may further limit approval authority

for the approving officials. Thresholds include all options.

Threshold Approving Official

Up to but not exceeding $5M Contracting Officer

Over $5M to $15M One Level above the Contracting Officer

Over $15M to $75M Contracting Director

Over $75M HCA or Contracting Executive, if applicable

(2)Contracting activities shall provide notification to the Service-Level Acquisition Policy Office and

to the SPE at spe.request@gsa.gov during the market research phase for acquisitions anticipated to

be valued over $500 million.
(3)If the acquisition meets one of the following criteria, the planner must obtain HCA approval of the

acquisition plan. HCAs may designate approval authority to a level no lower than the Contracting

Director.

(i) Complex, critical to agency strategic objectives and mission, highly visible or politically sensitive.

(ii) An acquisition with which the contracting activity has little or no experience that may result in a

need for greater oversight or risk management.

(iii) Actions using significantly changed methods (e.g., methods of procurement such as lease versus

purchase, or methods of performance such as contractor versus Government personnel).

(iv) New construction, lease prospectus and alteration prospectus budget line items.

(v) Any acquisition that involves consolidation or bundling above $2 million.

(4) Acquisitions requiring additional transactional data reporting elements to those listed in

subparagraph (b)(2) of clauses 552.216-75 and 552.238-80 Alternate I-

(i) Must be coordinated with the applicable category manager, and obtain approval by the HCA and

SPE; and

(ii) Must provide the information at 501.304(b)(4) in the rationale for adding transactional data

reporting elements.

(iii) The approval requirements in this subparagraph do not apply to additional data elements added

to a task/delivery order or blanket purchase agreement. However, coordination with the applicable

category manager is required.

(c) Sustainability Strategies. Strategies to either mitigate or adapt to climate change can be

explored during acquisition planning and should be clearly documented within the acquisition plan

(see 507.105). Some requirements may present more environmental opportunities than others. The

Sustainable Facilities tool, available at sftool.gov may be used to identify sustainable attributes

(products that are energy efficient, water efficient, or made from recycled materials).

507.104 General procedures.

(a)The planner shall:

(1)Comply with the requirements of FAR subpart 7.1 and this subpart, and coordinate with other

members of the planning team as appropriate.

(2)Write the acquisition plan using all planning team members especially for complex or highly

sensitive acquisitions.

(3)Review the acquisition history of the supplies and services.

(4)Review the description of the supplies, including (when necessary for adequate description) a

picture, drawing, diagram, or other graphic representation.

(5)Coordinate with the Small Business Technical Advisor (SBTA) as necessary to fulfill the
requirements of FAR 7.104(d) (See 519.202-1).

(6)Coordinate with the GSA Chief Information Officer (CIO) if the action involves GSA information

technology and ensure acquisition plans are approved by the GSA CIO. Guidance for identifying the

applicable GSA CIO point of contact can be found on GSA’s Acquisition Portal at

https://insite.gsa.gov/acquisitionportal. For interagency acquisitions involving information

technology, see subpart 517.5.

(7)Obtain concurrence of the contracting officer, and approvals as required in paragraph 507.103

(b)(1).

(8)Coordinate with the Office of General Counsel on an as needed basis, but definitely for acquisition

plans over $20 million.

(9)Ensure that an interagency agreement is in place in all agency specific clauses, terms and

conditions are incorporated in the acquisition, when conducting purchases on behalf of other

agencies.

(10) Coordinate, as necessary, with any designated sustainability point of contact for the

requirement (see 504.7104).

(11) Follow sustainability policies and procedures specified in part 523 throughout the

procurement.

(12)Coordinate with the contracting officer to ensure all INFORM components (see INFORM Guide)

are integrated into the acquisition planning process. The acquisition plan must include the time

necessary for orientation of acquisition stakeholders and potential evaluators to INFORM

procedures and timeline commitments.

(b)The contracting officer shall:

(1)Ensure that acquisition planning and market research are performed for all acquisitions.

(2)Ensure all acquisition plans for applicable acquisitions per 515.370 contain the INFORM

components.

(3)Ensure that the contract file contains a copy of the approved acquisition plan.

(c) Applicability. All acquisitions exceeding the SAT, including orders and BPAs, require written

acquisition plans.

(1)When awarding a single IDIQ contract, an acquisition plan will be developed for the base

contract. The resulting orders should be covered by and reference the same acquisition plan.

(2)When awarding a BPA for a specific requirement and agency, an acquisition plan will be

developed for the base contract. The resulting orders should be covered by and reference the same

acquisition plan.

(3)For oral acquisition plans, see 507.105-70.

(d) For all acquisitions exceeding the SAT, the planner must provide a written acquisition plan. The

plan, with required approvals, must be documented in the (electronic) contract file before

solicitation issuance.
507.105 Contents of written acquisition plans.

(a) The content prescribed in FAR 7.105 shall be used in the preparation of written acquisition plans.

Except for 507.105(a)(1), where a particular element described in FAR 7.105 does not apply, the

acquisition plan should read “not applicable.” The dollar value, complexity (e.g., commercial versus

other than a commercial purchase) and method of acquisition (e.g., full and open competition versus

task/delivery order) of the supplies and services to be acquired will affect the scope and breadth of

the acquisition plan.

(1) Sustainable Acquisition Considerations. Whether it is in the requirements, the statement of work,

the method of award, or the contract administration strategy, most acquisitions present

opportunities to consider the impact on the environment. For all acquisitions that require a written

acquisition plan, environmental impact shall be considered and documented in the acquisition plan

(see FAR 7.105(b)(17)). When addressing FAR 7.105(b)(17) in the acquisition plan, the contracting

officer should address the following:

(i) Statement of Work. When conducting acquisition planning, the contracting officer is encouraged

to strategize with the program manager to consider the most environmentally preferable solutions

for the Government. For example, this could include buying items with less packaging, greater

recycled content, longer shelf life, lower carbon footprint, improved energy efficiency, less waste, or

services that are performed remotely to reduce the federal carbon footprint (see 511.002(a) for

additional guidance).

(ii) Contract Administration. Describe actions during contract administration to promote

environmentally preferable solutions. For example, this could include any in-scope efficiencies that

are identified after contract award that further reduce the Government’s carbon footprint.

(2) Contracting officers may not state that the sustainability section of the acquisition plan is “not

applicable” without a full explanation as to why the acquisition does not present any sustainable

acquisition opportunities.

(b)FAR 7.106 (major systems) and FAR 7.107 (consolidation, bundling, or substantial bundling) shall

be addressed in the acquisition plan, if applicable.

(c)For leasehold interests in real property, a modified version of the contents of acquisition plans for

leases is utilized.

(d)The requirement for a written acquisition plan may be waived by the appropriate level of an

approving official listed in 507.103 (b). When the requirement for a written acquisition plan is

waived, an oral acquisition plan is still required. The planner must obtain approval for the oral

acquisition plan from the approving official.

(e) Software. If procuring software, specify the result of any software requirement alternatives

analysis that has been completed in accordance with 511.170 (e).

(f) Cyber-supply chain risk management for GSA-funded acquisitions.

(1)The acquisition planner must discuss the scope of involvement (or planned involvement) of the

GSA Chief Information Security Officer (CISO), or representative, as part of the acquisition planning

team, to ensure cyber-supply chain risk considerations are addressed on a best effort basis based on

availability of resources if the acquisition may involve GSA information systems and any of the
following are applicable:

(i) Hardware Devices. Hardware devices that connect to the GSA enterprise network (wired or

wireless).

(ii) Critical Software. Critical software that meets the current definition of Critical Software Under

Executive Order (EO) 14028, Improving the Nation’s Cybersecurity, as defined by the National

Institute of Standards and Technology (NIST).

(iii) Federal Information Processing Standard (FIPS) 199 High-Impact Information System. A highimpact information system could be expected to have a severe or catastrophic adverse effect on

organizational operations, organizational assets, or individuals if there was a breach of security

resulting in a potential loss of confidentiality, integrity, or availability.

(iv) FIPS 199 Moderate-Impact Information System. A moderate-impact information system could be

expected to have a serious adverse effect on organizational operations, organizational assets, or

individuals if there was a breach of security resulting in a potential loss of confidentiality, integrity,

or availability.

(v) FIPS 199 Low-Impact Information Systems. Unless 507.105(f)(1)(iii) or (iv) applies, this

paragraph (f)(1) does not apply to the acquisition of low-impact information systems.

(2)For any other procurement requiring a written acquisition plan, the acquisition planner should

discuss efforts to mitigate risks associated with cyber-supply chain risk management. Efforts and

considerations could include:

(i)Market research efforts (see 510.002(c) and (d));

(ii)Procuring products or services already approved in GSA’s Enterprise Architecture Analytics and

Reporting (GEAR) system;

(iii)Procuring products or services with a current GSA IT Assessment and Authorization (A&A, or

Authority to Operate (ATO)) or Federal Risk and Authorization Management Program (FedRAMP)

Authorization;

(iv)Considering contracting vehicles that have already evaluated awardees supply chain methods

and assurances; or

(v)Planning efforts with the GSA CISO.

507.105-70 Contents of oral acquisition plans.

Oral acquisition plans. Oral acquisition plans are only authorized by approval of the HCA and may be

used in unusual and compelling situations. The planner shall document a summary of the oral

acquisition plan, and shall also include: the name and signature of the approving official; the date

the oral acquisition plan was approved; and the reason for waiving a written acquisition plan. The

summary shall be included in the official contract file. In addition, the summary should be a part of,

or attached to, any justification for other than full and open competition as required by FAR 6.302,

or in the basis for using an exception to the fair opportunity process required by FAR 16.505(b)(2).

The summary may be prepared after award if preparation before award would unreasonably delay

the award, such as in the case of circumstances warranting the use of a letter contract.
507.107 Additional requirements for acquisitions involving

consolidation, bundling, or substantial bundling.

507.107-1 General.

Guidance on consolidation, bundling or substantial bundling can be found on GSA's Acquisition

Portal at https://insite.gsa.gov/acquisitionportal.

(a) Applicability.

(1) The contracting officer must determine if the requirement is considered consolidation, bundling

or substantial bundling per the definitions in FAR 2.101(b) and FAR 7.107-4. 

(2) Construction Indefinite-Delivery, Indefinite-Quantity (IDIQ) Contracts.

(i) When establishing an IDIQ contract for construction and the number of discrete sites is

unknown, the contracting officer has the discretion to assess the construction requirements for

consolidation at either the IDIQ or task order (TO) level. A consolidation analysis should not be

performed at both levels.

(ii) The acquisition plan and GSA Form 2689, as applicable, must address if a consolidation

determination was or will be made at an IDIQ or TO level.

(b) Thresholds for Written Determination. Notwithstanding exceptions per FAR 7.107-1(b), a written

determination is required for—

(1) Consolidation requirements above $2 million; and

(2) Bundling requirements at any dollar value.

(c) Approvals for Written Determination.

(1) The contracting officer shall obtain approvals as required by the Service prior to the Associate

Administrator, Office of Small and Disadvantaged Business Utilization (AA OSDBU) and the Senior

Procurement Executive (SPE).

(2) The contracting officer shall coordinate with the GSA Office of Small and Disadvantaged

Business Utilization for AA OSDBU’s approval prior to the SPE’s approval.

(d) Contents of Written Determination for Consolidation.

(1) The contracting officer must provide the following information, which includes the requirements

at FAR 7.107-2:

(i) Brief description of the acquisition history.

(ii) Description of the market research conducted.
(iii) Identification of any alternative contracting approaches that involve a lesser degree of

consolidation of contract requirements.

(iv) Identification of the contracting approach selected.

(v) Identification of any negative impacts to small business concerns.

(vi) Description of steps taken to include small business concerns in the acquisition strategy.

(vii) Explanation of the substantial benefits.

(viii) Statement that the consolidation and/or bundling is necessary and justified.

(e) Additional Contents of Written Determination for Bundling.

(1) The contracting officer must provide the information required by paragraph (e)(2) of this

subsection in addition to paragraph (d) of this subsection when the requirement is considered

bundling (see FAR 2.101). The additional information listed in this paragraph includes the

requirements at FAR 7.107-3.

(2) The contracting officer must use market research to determine prices the Government could

have been or could be charged by a small business for the work previously performed by other than

small business(es) (see FAR 7.107-3(g)).

(f) Additional Contents of Written Determination for Substantial Bundling.

(1) The contracting officer must provide the following information in addition to paragraphs (d) and

(e) of this subsection when the requirement is considered substantial bundling (see FAR 7.107-4).

(2) The contracting officer must provide the following information, which includes the requirements

at FAR 7.107-4(b):

(i) Explain the rationale for not selecting each alternative contracting approach with a lesser degree

of consolidation.

(ii) Identify the specific impediments to participation by small business concerns as contractors,

including any relevant socioeconomic subcategories.

(iii) Explain any actions designed to maximize small business participation through teaming.

(iv) Explain any actions designed to maximize small business participation through subcontracting,

including suppliers.

(g) Substantial Benefits Reporting.

(1) The contracting officer must monitor and measure actual savings throughout the acquisition life

cycle, and report realized substantial benefits to the SPE.

(2) Realized substantial benefits shall be reported:

(i) Within 14 calendar days after award of the contract.

(ii) Within 30 calendar days after completion of the contract.
(iii) During contract performance as requested by the SPE on a case by case basis.

507.107-5 Notifications.

(a) Notification to the public of rationale for consolidated, bundled, or substantially bundled

requirement.

(1) A summary notification of a determination that a consolidated, bundled, or substantially bundled

requirement is necessary and justified will be published by the SPE on the System for Award

Management Contract Opportunities at https://www.sam.gov. The notice will be posted within 7 days

of the SPE approved determination.

(2) Any solicitation related to the consolidation, bundled, or substantially bundled requirement can

only be published after the summary notice from subparagraph (a)(1) of this section has been

published for at least 7 days.

(3) The contracting officer is encouraged to provide the summary notification from subparagraph

(a)(1) of this section to the Governmentwide Point of Entry (GPE) before issuance of the solicitation.

(4) The contracting officer shall publish the SPE approved determination with the publication of the

solicitation, redacted as necessary.

(5) For bundled or substantially bundled requirements, in addition to the requirements of this

subsection, the contracting officer must verify compliance with the notification requirements of FAR

7.107-5(b).

(b) Notification to SBA of follow-on consolidated or bundled requirements.

(1) The contracting officer shall coordinate with the designated SBTA (see subpart 519.4) to provide

follow-on notification to the SBA PCR in accordance with FAR 7.107-5(c). The designated SBTA will

provide notification to the SPE at spe.request@gsa.gov, the AA OSDBU at

osdbu_review_concurrence@gsa.gov, and the Service-level policy organization (e.g., FAS's Office of

Policy and Compliance and PBS's Office of Acquisition).

(2) The SBTA will submit the notification to SBA PCR within 5 business days of receiving the

notification from the contracting officer or request an extension from the contracting officer.